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SPECIAL REPORTS ON 
THE PHILIPPINES 

TO THE PRESIDENT 



By 



WM. H. TAFT, Secretary of War 

January 23, 1908 

and 

J. M. DICKINSON, Secretary of War 

November 23, 1910 




(^C H^. 



WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1919 



SPECIAL REPORTS ON 
THE PHILIPPINES 



TO THE PRESIDENT ^ .^- 



By 



WM. H. TAFT, Secretary of War 

January 23, 1908 
and 

J. M. DICKINSON, Secretary of War 

November 23, 1910 




WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1919 



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SPECIAL REPORT OF WM. H. TAFT, SECRETARY OF 
WAR, TO THE PRESIDENT ON THE PHILIP- 
PINES, JANUARY 2:3, 1908. 



CONTENTS. 



Page. 

Letter of transmittal 7 

Condition as to law and order — Their restoration and permanent 

maintenance H 

Work of the United States Army 15 

Promise of extension of self-government 16 

Organization of the Federal partj'^ ^^1 16 

Central government 17 

Effect on permanent order of municipal and provincial governments 

and national assembly I'S 

Establishment of courts 18 

Philippine constabulary 20 

Friars' lands 21 

Present condition 23 

Political capacity and intellectual development of the Filipinos under 
Spain and the steps taken by the Philippine government for their 

general and political education ^ 23 

Education in schools . 26 

Filipino cadets at West Point 30 

Practical political education 30 

Municipalities and provinces 31 

Civil service 37 

Civil rights 38 

National assembly 39 

Sanitation 45 

Benguet — A health resort 51 

Comparative mortality from January 1, 1901, to September 30, 1907 — 53 

Mortality compared with same period of previous years 53 

Material progress and business conditions 53 

. Value of Philippine exports, 1903-3907, of American occupation 54 

Value of Philippine exports in Spanish times, calendar years 1885- 

1894 55 

Sugar and tobacco — Reduction of tariff 55 

Fodder 56 

New plants 57 

Financial condition of the government 57 

Friars' lands 59 

Final settlement in respect to charitable trusts and Spanisli-Filipino 

Bank with Roman Catholic Church 59 

Roads 60 

Railroads in the Philippines 60 

General business conditions 61 

Business future of Philippines 61 

Gold-standard currency 62 

Need of capital — Agricultural bank 62 

Postal savings bank 63 

Post office and telegraphs 63 

Mines and mining 64 

United States coastwise trading laws 65 

City of Manila 66 

Political future of the islands 66 

Cost of the present government of the islands 70 

Recommendations 71 

5 



6 CONTENTS. 

Page. 

Address of Hon. William H. Tuft at Inauguration of Philippine Assembly- 74 

Policy of the United States Government 76 

Time necessary for political preparation 76 

Criticisms of policy of United States 76 

What has been accomplished 77 

Establishment of civil government 77 

Result of opposition 77 

Impatience for further power 77 

Obstacles that had to be overcome 77 

Political 77 

Novelty of task 78 

Reluctance of capitalists to invest money 78 

Failure of Congress to open markets of United States 78 

Diseases of cattle 79 

Cholera, plague, bubonic plague, and other diseases 79 

Ladronism 79 

How the difficulties have been met 79 

Promises of Administration carried out 80 

Establishment of the Assembly 80 

Suppression of insurrection 80 

Progress made 80 

Peace and order 80, 81 

Education 80 

Health and sanitation 81 

Judicial system 82 

Constabulary, aid rendered by 82 

Justices of the peace 82 

Public improvements 82 

Harbors 82 

Road building 83 

Benguet as a health resort , 83 

Railroads 83 

Municipal improvements 83 

System of posts, telephones, and telegraphs 83 

Civil-service law 84 

American and Filipino employees 84 

Tenure and pensions 84 

Public land laws 85 

Agricultural bank 85 

Condition of agriculture 86 

Financial condition > 86 

Silver, value of 86 

Business progress 86 

Sale of the islands 87 

Installation of the National Assembly 87 

Organic act 88 

Result of election 89 

Advice to the members 91 



To the Senate and House of Representatwes : 

I transmit herewitli the report of Secretary Taft upon his recent 
trip to the Philippines. I heartily concur in the recommendations he 
makes, and I call especial attention to the admirable work of Gov. 
Smith and his associates. It is a subject for just national gratifi- 
cation that such a report as this can be made. No great civilized 
power has ever managed with such wisdom and disinterestedness the 
affairs of a people committed by the accident of war to its hands. If 
we had followed the advice of the misguided persons who wished us 
to turn the islands loose and let them suffer whatever fate might be- 
fall them, they would have already passed through a period of com- 
plete and bloody chaos, and would noAv undoubtedly be the possession 
of some other power which there is every reason to believe would not 
have done as we have done ; that is, would not have striven to teach 
them how to govern themselves or to have deyeloped them, as we have 
developed them, primarilj^ in their own interests. Save only our atti- 
tude toward Cuba, I question whether there is a brighter page in the 
annals of international dealing between the strong and the weak than 
the page which tells of our doings in the Philippines. I call especial 
attention to the admirably clear showing made by Secretary Taft 
of the fact that it would have been equally ruinous if we had yielded 
to the desires of those who wished us to go faster in the direction of 
giving the Filipinos self-government, and if we had followed the 
policy advocated by others, who desired us simply to rule the islands 
without any thought at all of fitting them for self-government. The 
islanders have made real advances in a hopeful direction, and they 
have opened well wdth the new Philippine Assembly : they have yet a 
long way to travel before they will be fit for complete self-govern- 
ment, and for deciding, as it will then be their duty to do, whether 
this self-govermnent shall be accompanied by complete independence. 
It will probably be a generation, it may even be longer, before this 
point is reached ; but it is most gratifying that such substantial prog- 
ress toward this as a goal has already been accomplished. We desire 
that it be reached at as early a date as possible for the sake of the 
Filipinos and for our own sake. But improperly to endeavor to hurry 
the time will probably mean that the goal will not be attained at all. 

Theodore Roosevelt. 
The White House, 

January 27, 1908. 



SPECIAL REPORT OF THE SECRETARY OF WAR. 

War Department, 

Washington^ D. C, January £3, 1908. 
Mr. President: 

By your direction I have just visited the Philippine Islands. I 
sailed from Seattle September 13, last; reached Manila October 15; 
remained in the islands until November 9, v,'hen I returned to the 
United States via Trans-Siberian Railway, reaching New York De- 
cember 20. The occasion for my visit was the opening of the Philip- 
pine Assembly. The members of the assembly were elected in Jvil}^ 
last, in accordance with the organic act of Congress, by the eligible 
voters of the Christian Provinces of the islands, divided into 80 dis- 
tricts. The assembly becomes a branch of the legislature of the 
islands coordinate with the Philippine Commission. This makes a 
decided change in the amount of real power which the Philippine 
electorate is to exercise in the control of the islands. If justified by 
substantial improvement in the political conditions in the islands, it 
is a monument of progress. 

It is more than nine years since the Battle of Manila Bay and the 
subsequent surrender of Manila by the Spaniards to the American 
forces. It is more than eight years since the exchange of ratifica- 
tions of the treaty of Paris, by which the Philippine Islands passed 
under the sovereignty and became the property of the United States. 
It is more than seven years since President McKinley, by written 
instructions to Mr. Root, Secretary of War, committed the govern- 
ment of the Philippine Islands to the central control of the Philip- 
pine Commission, subject to the supervision of the Secretary of War. 
It is more than six years since the complete installation of a quasi 
civil government in the islands, with a civil governor as executive 
and the commission as a legislature, all bj^ authority of the Presi- 
dent as Commander in Chief of the Army and Navy, It is more 
than five j^ears since tlie steps taken by President McKinley and 
yourself in establishing and maintaining a (juasi civil government 
in the islands were completely ratified and confirmed by the Con- 
gress in an organic act which, in effect, continued the existing govern- 
ment, but gave it needed powers as a really civil government that 
the President under constitutional limitations was unable to confer. 
The installation of the assembly seems to be, therefore, an appropri- 
ate time for a precise statement of the national policy toward the 
people of the Philippines adopted by Mr. McKinley, continued by 
you, and confirmed by Congress, for an historical summary of the 
conditions political, social, and material, existing in the islands when 
the United States became responsible for their government, and for a 
review of the results of governmental measures taken to improve the 



10 SPECIAL EEPOETS ON THE PHILIPPINES. 

conditions of law and order, the political and intellectual capacity of 
the people, and their sanitary and material welfare. 

The policy of the United States toward the Philippines is, of course 
ultimately for Congress to determine, and it is difficult to see how one 
Congress could bind another Congress, should the second conclude to 
change the policy declared by the first. But we may properly assume 
that after one Congress has announced a policy upon the faith of 
wdiich a whole people has for some years acted and counted, good con- 
science would restrain subsequent Congresses from lightly changing 
it. For four years Congress in silence permitted Mr. Mckinley and 
yourself, as Commanders in Chief of the Army, to adopt and carry 
out a policy in the Philippines, and then expressly ratified everything 
which you had done, and confirmed and made part of the statute cer- 
tain instructions which Mr. McKinley issued for the guidance of the 
Philippine Commission in making civil government in the islands. 
Not only this, but Congress closely followed, in the so-called organic 
act, your recommendations as to provisions for a future change in the 
Philippine government. The national policy may, therefore, be found 
in the course pursued and declarations made by the Chief Executives 
in congressional messages and other state papers which have met the 
approval of Congress. 

Shortly stated, the national policy is to govern the Philippine 
Islands for the benefit and welfare and uplifting of the people of the 
islands and gradually to extend to them, as they shall show them- 
selves fit to exercise it,, a greater and greater measure of popular self- 
government. One of the corollaries to this proposition is that the 
United States in its government of the islands will use every effort 
to increase the capacity of the Filipinos to exercise political power, 
both by general education of the densely ignorant masses and by 
actual practice, in partial self-government, of those whose political 
capacity is such that practice can benefit it without too great injury 
to the efficiency of government. What should be emphasized in the 
statement of our national policy is that w^e wish to prepare the 
Filipinos for popular self-government. This is plain from Mr. Mc- 
Kinley's letter of instructions and all of his utterances. It was not 
at all within his purpose or that of the Congress which made his letter 
part of the law of the land that we were merely to await the organiza- 
tion of a Philippine oligarchy or aristocracy competent to administer 
government and then turn the islands over to it. On the contrary, 
it is plain, from all of Mr. McKinley's utterances and your own, in 
interpretation of our national purpose, that we are the trustees and 
guardians of the whole Filipino people, and peculiarly of the ignorant 
masses, and that our trust is not discharged until those masses are 
given education sufficient to know their civil rights and maintain 
them against a more powerful class and safely to exercise the politi- 
cal franchise. This is important, in view of the claim, to wdiich I 
shall hereafter refer, made by certain Filipino advocates of imme- 
diate independence under the auspices of the Boston anti-imperialists, 
that a satisfactory independent Philippine government could be es- 
tablished under a governing class of 10 per cent and a serving and 
obedient class of 90 per cent. 

Another logical deduction from the main proposition is that when 
the Filipino people as a whole, show themselves reasonably fit to 



SPECIAL REPORTS OX THE PHILIPPHSTES. 11 

conduct a popular self-goveinment, maintaining law and order and 
offering equal protection of the laAvs and civil rights to rich and 
poor, and desire complete independence of the United States, the.>' 
shall be given it. The standard set, of course, is not that of perfec- 
tion or such a governmental capacity as that of an Anglo-Saxon peo- 
ple, but it certainly ought to be one of such popuhir political capacity 
that complete independence in its exercise will result in progress 
rather than retrogression to chaos or tyranny. It should be noted, too, 
that the tribunal to decide whether the proper political capacity exists 
to justify independence is Congress and not the Philippine electorate. 
Aspiration for independence may well be one of the elements in 
the make-up of a people to show their capacity for it, but there are 
other qualifications quite as indispensable. The judgment of a people 
as to their own political capacity is not an unerring guide. 

The national Philippine policy contemplates a gradual extension 
of popular control, i, e.. by steps. This was the plan indicated in Mr. 
McKinley's instructions. This was the method indicated in your 
recommendation that a popular assembly be made part of the legis- 
lature. This was evidently the view of Congress in adopting your 
recommendation, for the title of the act is " For the temporary gov- 
ernment of the Philippine Islands " and is significant of a purpose or 
policy that the government then being established was not in perma- 
nent form, but that changes in it from time to time would be necessary. 

In the historical summary of conditions in the islands when the 
United States assumed responsibility for their government and the 
review of measures adopted by the present Philippine government 
to improve conditions and the results, it will be convenient to con- 
sider the whole subject under the following heads : 

1. The conditions as to law and order. The way in which they 
have been restored and are now permanently mai?itained. 

2. The political capacity and intellectual development of the 
Filipinos under Spain and the steps taken by the Philippine govern- 
ment for their general political education. 

3. Conditions of health under Spain. The sanitary measures under 
the Philippine government. 

4. The material and business conditions. Progress made under 
present government. 

5. The future of the Philippines. 

6. The cost of the Philippine Government to the United States. 

THE CONDITIONS AS TO LAW AND ORDER— THEIR RESTORATION 
AND PERMANENT MAINTENANCE. 

In 1896 occurred the first real insurrection against the Govermnent 
of Spain in the Philippine Islands. The idea of a more liberal gov- 
ernment than that which Spain gave the islands had taken root in 
1871 with the opening of the Suez Canal, the flocking of Spaniards 
to Manila, and the spread of republican doctrines that had had a short 
triumph in the mother country about that time. In the measures of 
repression which were adopted from time to time by Spanish govern- 
ors-general the aid of Spanish parish priests was thought by the peo- 
ple to be actively enlisted in ferreting out those suspected of sedition 
and too liberal political views. The priests were largely from the 



12 SPECIAL REPORTS ON THE PHILIPPINES. 

four religious orders — the Dominicans, the Augustinians, the Fran- 
ciscans, and the Recoletos. There was a considerable body of native 
priests also, but they were of the secular clergy, held the less desirable 
posts, and were hostile to the Spanish friars. Three of the religious 
orders held large bodies of rich agricultural lands situate, much of it, 
in Cavite, Laguna, Manila, Morong, Bataan, and Bulacan, all thickly 
populated Provinces close to Manila. Their tenants numbered sixty 
or seventy thousand persons. The insurrection of 1896 was not only 
against the Spanish Government to secure a more liberal regime but 
it was also for the elimination of the friars as a controlling political 
element in the community. It was largely confined to Cavite, La- 
guna, Manila, and Bulacan, where lay the large friars' estates. It had 
an agrarian aspect. There was much fighting, and the losses on both 
sides were very heavy, especially in the Province of Cavite. Ulti- 
mately the drastic measures of the Spaniards drove Aguinaldo and 
the forces which he led out of Cavite into Bulacan and led to what 
was known as the treaty of Biac-na-Bato. This was an arrangement 
by which many of the insurrecto chiefs, including Aguinaldo, agreed, 
in consideration of the payment of a large sum of money, to end the 
insurrection and withdraw from the islands. The money was to be 
paid in three installments. The first payment was made, and many of 
the chiefs, including Aguinaldo, withdrew from the islands and went 
to Hongkong. There was much dispute as to what the agreement 
was, and it was strenuously insisted by each side that the other failed 
to comply with its stipulations. It is not material now to consider 
this mooted question. Suffice it to say that in 1898, when Admiral 
Dewey attacked the Spanish fleet in Manilla Bay, the embers of dis- 
satisfaction on the part of the former Filipino insurgents with the 
Spanish Government were still aglow, and it was not difficult for 
Aguinaldo to raise a force of insurrectos to aid the Americans in 
surrounding Manila and in driving Spain from the islands. 

Between 1896 and 1898 the conditions which had been brought on 
by the first insurrection continued, and trade was much interrupted, 
agriculture did not flourish, and conditions as to the maintenance of 
order were by no means favorable. As an index to this, it may be 
said that the managers of the friars' estates collected no rents from 
the tenants after 1896. The Battle of Manila Bay and the defeat of 
the Spanish fleet destroyed the prestige of Spain throughout the 
islands and created insurrection in nearly every Province. The re- 
fusal of Gen, Merritt to permit Aguinaldo's troops to enter Manila 
created a resentment on the part of the Filipino soldiers, and the 
relations between the Americans and the Filipinos soon became 
strained. The situation was not relieved at all by the signing of the 
treaty at Paris, transferring the sovereignty of the islands to the 
Americans. Meantime, as the Americans were confined to the occu- 
pation of Manila, Aguinaldo and his military assistants attempted 
the organization of a government throughout the islands. A so-called 
constitutional convention was held at Malolos and a constitution was 
adopted. At the same time the Visayan republic was organized, to 
embrace the Visayan Islands, under certain Visayan leaders. It 
professed allegiance to Aguinaldo's government. Neither Agui- 
naldo's government nor the Visayan government was able to main- 
tain order, and the whole country was subject to the looting of preda- 



SPECIAL REPORTS ON THE PHILIPPINES. 13 

lory bands, and cliaos roi^ned. Where the Agiiinahio f>-o^ernnieiit 
liad authority, it was exercised with military severity and with much 
local oppression and corruption. On the 4th of February, 1899, there 
was an attack by tlie Filipino forces surrounding Manila upon the 
American troops, which was successfully resisted. Later on, upon the 
23d of February, there was an outbreak in Manila itself, and an 
attempt to burn the city, which was suppressed by the American 
troops with a heavy hand. 

On the 11th of April the treaty ceding tlie Philippine Islands to 
the United States was ratified and ratifications exchanged. From 
that time \uitil the s]n*ing of 1900 a campaign was carried on by the 
American forces against the regularly organized troops under Agui- 
naklo. Aguinaldo's forces were defeated and scattered, and then in 
1900 there succeeded a guerrilhi warfare in nearly every Province on 
the islands, which was continued with more or less vigor until July, 
1902. The guerrilla warfare was carried on only because of tlie 
encouragement received by the insurrectos from speeches of the so- 
called "anti-imperialists" and the assurances publicly given b}^ po- 
litical leaders in the United States of immediate severance of the 
relations between the islands and the United States in case the admin- 
istration were defeated in the election. At times the warfare would 
seem to cease and the insurrections seem to be at an end, and then 
it would revive again, apparentlj^ with a view to influencing elec- 
tions in America. 

It can readily be inferred from this statement that from the break- 
ing out of the insurrection in 1896, with the new insurrection in 1898, 
and the war with the Americans beginning early in 1899 until the 
close of the guerrilla warfare in June, 1902, the conditions of the 
country were not peaceable and agriculture could not flourish. Not 
only did the existence of actual war prevent farming, but the spirit 
of laziness and restlessness brought on by a guerrilla life affected the 
willingness of the native to work in the fields. More than this, the 
natural hatred for the Americans which a war vigorously conducted 
by American soldiers was likely to create did not make the coming 
of real peace easy. 

But in addition to these disturbed conditions, due directly to war, 
there are certain features of Philippine civilization always present, 
war or no war, that do not tend to permanent tranquillity and can not 
be ignored. 

In the first place the Philippines have been infested with ladrones, 
or robber bands, since their earliest history. The Spanish Govern- 
ment maintained a large force, called " la guardia civil," to suppress 
the evil. In some provinces, blackmail was regularly paid by large 
landoAvners to insure themselves against the loss incident to attack 
and destruction of their property. In the province of Cavite, for in- 
stance, ladronism was constant, and it was understood that the man- 
agers of the friars' estates, which amounted in all in that province to 
125,000 acres, usually paid blackmail to ladrones in the form of money 
or provisions. The province of Cavite was known as " the mother of 
ladrones," and there was certainly a sjanpathy between the lower 
classes and the ladrones who mulcted the landlords. 

But besides the ladrone habit, which makes for continued disorder, 
there is another quality of the ignorant masses of the Philippine 



14 SPECIAL EEPOKTS ON THE PHILIPPINES. 

people that is a constant danger to tranquillity. More than 80 per 
cent of the Philippine people are illiterate. Their ignorance is dense. 
They speak some 15 or 16 different Malay dialects. Knowledge of 
one dialect does not give an understanding of another. Each dialect 
has a limited vocabulary, which offers no medium of communication 
with modern tliought or civilization. Their ignorance makes them 
suspicious of all educated persons but those of their own race who 
know their dialect and are well to do. 

The result is that in rural communities in the Philippines whole 
townships of people are completely subject to the will of any educated, 
active-minded person living in that community, who knows the local 
dialect and is willing or able to arouse either the fears or cupidity of 
his neighbors into the organization of a band either to resist fancied 
dangers or oppression, to satisfy vengeance, or to achieve a living and 
comfort without labor. This is the central and most important fact 
in the make-up of the local Philippine communities. It has led to the 
abuse of caciquism, i. e., local bossism, to which I shall refer in the 
question of the organization of municipalities and provincial govern- 
ments. The history of the insurrection and of the condition of law- 
lessness which succeeded the insurrection is full of instances in which 
simple-minded country folk at the bidding of the local leader, or 
cacique, have committed the most horrible crimes of torture and mur- 
der, and when arrested and charged with it have merely pleaded th^t 
they were ordered to commit the crime by the great man of the 
community. This irresponsible power possessed by local leaders over 
their ignorant neighbors, in case of an independent Filipino govern- 
ment lacking the moral strength which the United States Government 
derives from its power and resources and its determination to punish 
disturbance and maintain order, would, under present conditions, 
lead, after a short period, to a chaos of ever-recurring revolt and in- 
surrection to satisfy the vengeance of disappointed bosses and local 
leaders. 

Whenever Filipino municipal officials come in contact either with 
non-Christian tribes or with inferior peoples of their own race like 
those who live in the mountains of Sam.ar and Leyte, known as 
" pulahanes," they are likely to exercise official authority for their 
own profit and to the detriment of the inferior people. Thus in 
Samar and Leyte the mountain people raise a good deal of hemp. 
The municipal authorities of the lowlands and the local caciques 
conspire to prevent the disposition of this hemp to anyone but their 
own agents at an unjustly low price, using duress and a show of 
official authority for the purpose. This fraud and mistreatment 
ultimately creates among the mountain peoples a just sense of indig- 
nation. Then it is that some religious fakir invites them to organize 
against their enemies, under the charm of some religious token, and 
some lowland village is sacked and its people are murdered. The 
central and provincial authorities intervene and a war ensues, which 
lays waste much of the interior of the islands, to suppress a disorder 
that had its inception in a just cause of complaint. 

Of course the frequency of such disturbances is reduced as educa- 
tion spreads, as the poor and oppressed begin to understand their 
rights and the lawful method of asserting them, and as the real cause 
of such outbreaks are more clearly understood and suppressed. But 



SPECIAL KEPORTS ON THE PHILIPPINES. 15 

no account of the difficulty of maintaining peace and order in the 
Philippines Avould be accurate or just which did not make clear this 
possible recurring' cause of trouble and disturbance under present 
conditions, due to the ease with which simple-minded, ignorant people 
of a community can be aroused by one or more of the better educated 
of their own race viciously inclined to deeds of murder and cruel 
violence. Such disturbances are generally heralded as the evidence of 
seething sedition and discontent with the American Government, 
whereas they are generally but the effect and symptom of mere local 
abuses entirely Filipino in origin. 

Having thus described the conditions of disorder, actual and poten- 
tial, in the Philippines, due not only to the four or five years of inter- 
mittent and recurring war, the rancor and race hatred it tended to 
create, the unfounded hopes held out by American anti-imperialists, 
and all the other sequelae of war, but also to certain normal features 
and qualities of the present Philippine civilization, I come to review 
the measures taken and policy adopted by the American Government 
to bring the islands to their present state of complete tranquillity. 

THE WOKK OF THE UNITED STATES ARMY. 

The agency of the Army in bringing about order in the islands 
must never be minimized. The hardships of the campaign which 
it had to carry on were very great. The responsibility which was 
thrown upon captains, lieutenants, and sergeants in command of 
small detachments into which it was necessary to divide the Army 
to meet the exigencies of guerrilla warfare was met with courage and 
intelligence and great fertility of resource under most trying and 
unusual conditions. It is not too much to say that no other anny 
of the same size could have accomplished the results which were 
accomplished by the American Army. At times there were some 
memliers of this Army who were tempted, in the eagerness of pursuit, 
into indefensible and cruel practices for the obtaining of informa- 
tion — practices which had been common among the Spaniards and 
the Filij^inos themselves. Revelations of these cruelties led to severe 
indiscriminate criticism and attacks on the Army as a whole, which 
were calculated to discourage and dishearten, but in spite of al] 
difficulties the work went on. At one time in the campaign against 
guerrilla warfare there were more than 500 different posts and more 
than 65,000 men in arms. Certain it is that order would have never 
been restored without the efficient and courageous service rendered 
by the Army, and in spite of all the stories that were told of the 
cruelties inflicted by the Americans upon Filipinos, only a small part 
of which were true, any candid observer of the conditions at the time 
must admit that the American soldiers as a body exhibited toward 
the Filipinos a self-restraint and a sympathy with the benevolent 
])urposes of the administration which the circumstances and the char- 
acter of the Filipino Avarfare carried on were not calculated to invite. 

Not only did the Armj^ do most efficient work in the suppression of 
the insurrection when war was rife, but the presence of 12,000 Ameri- 
can soldiers in the islands since has been a moral force of great weight 
to secure peaceful conditions. Occasionally they have been called on 
for active work in subduing disorders in particular Provinces which 
had gone beyond the control of the local and insular peace officers and 



16 SPECIAL KEPORTS 01^ THE PHILIPPINES. 

they have rendered prompt and effective service in such cases. They 
are now being concentrated in larger and larger posts for economical, 
educational, and disciplinary purposes, but their presence anywhere 
in the islands is beneficial to the cause of order. They are now popu- 
lar with the Filipinos, and we find the same objection to abandonment 
of posts by neighboring Filipino communities that we meet in the 
United States. 

PEOMISE Ot EXTENSION OE SELF-GOVERNMENT. 

President McKinley announced as his policy that the Philippine 
Islands would be taken over by the American Government to be 
governed for the benefit of the Filipinos, and that as they developed 
fitness for partial self-government it should be gradually extended 
to them. In order to enforce and give evidence of this purpose, he 
appointed a commission in 1899, known from its chairman, Hon. J. 
G. Schurman, as the " Schurman Commission," to visit the Philippine 
Islands and extend local self-government as rapidly as possible. The 
commission was able only to investigate conditions and to report that 
in its judgment the Filipinos were not fit for self-government. It was 
able to be present at- the organization of municipal government in a 
few towns which had been captured by the Americans, but it prac- 
tically was able to do no constructive work, in view of the conditions 
of war that existed while it was there. It returned to the United 
States and made its report. 

In February of 1900 a new commission was appointed by Presi- 
dent McKinley, who gave it much more ample powers than its pred- 
ecessor, for the purpose of organizing civil government in the wake 
of war as rapidly as conditions would permit. The powers conferred 
Avere set forth in a letter of instructions delivered by President 
McKinley to Mr. Eoot, Secretary of War, for his guidance and that 
of the commission in respect of the policy to be pursued in the 
Philippines. The commission arrived in June, 1900. The com- 
mission was not authorized to assume any authority until the 1st of 
September and spent its time from June until September, 1900, in 
making investigations. It then took over the power and duty of en- 
acting legislation to make a government for that part of the islands 
in which war had ceased to exist and to make appropriations from 
funds raised by taxation for civil purposes. The preparation and 
enactment of a municipal and a provincial code for the organization 
and maintenance of municipalities and provinces in the islands occu- 
pied much of the attention of the commission during the remainder 
of the year 1900. 

For the three or four months prior to the presidential election in 
November, 1900, it was impossible to proceed with the actual organi- 
zation of civil government. The insurgents were assured that the 
administration of Mr. McKinley would be defeated and that his de- 
feat would be immediately followed bv a separation of the islands 
from the United States. Everything hung on the election. The re- 
election of Mr. McKinley was a great blow to the insurrectos. 

ORGANIZATION OF THE FEDERAL PARTY. 

It is a mistake to suppose that the war by the Filipinos against the 
Americans had the sympathy of all the Filipinos. On the contrary, 



SPECIAL KEPORTS ON THE PHILIPPINES. 17 

there were many intelligent and conservative men who favored 
American control and who did not believe in the capacity of their 
people immediately to organize a government which would be stable 
and satisfactory, but in the face of a possible independence of the 
islands, they were still. Upon Mr. McKinley's second election many 
of these persons reached the conclusion that it was time for them to 
act. Accordingly, they formed the Federal Party, the chief platform 
of which was peace under American sovereignty and the acceptance 
of the American promises to govern the islands for the benefit of the 
P^'ilipinos and gradually to extend popular self-government to the 
people. The Federal Party received accessions by thousands in all 
parts of the islands and in every Province, so that the commission 
was enabled during the year 1901, and under the auspices, and with 
the aid of, the Federal Party, to organize civil government in some 32 
or 33 provinces- or in substantially all of them. The proof of the 
purposes of the American Govermnent, given in the popular features 
of the provincial and municipal codes, which bore out in every re- 
spect the general promises of President McKinley, had much to do 
with the ending of the war. From November 1, 1900, until July 1, 
1901, when military government was declared to be ended and a civil 
governor appointed, the men and guns surrendered exceeded that of 
any similar period in the history of the war. 

THE CENTRAL GOVERNMENT. 

The somewhat anomalous creation of the Philippine Commission, 
as a civil legislature in a purely military government established by 
the President by virtue of his powers as Commander in Chief, pre- 
sented some difficult questions of jurisdiction between the military 
governor and the commission and led to considerable friction. The 
commission, however, held the purse strings, and as is usual in such 
cases the control of appropriations ultimately left the powers of 
the commission substantial and undisputed. Another difficulty arose 
in respect to jurisdiction of the courts established and appointed by 
the commissioners to issue writs of habeas corpus to inquire into the 
legality of the detention of civilians by the general commanding. 
This, too, subsequently was worked out in favor of the civil courts. 
The differences between the military and civil authorities did not es- 
cape the attention of the Philippine public, and of course the sym- 
pathy of the Filipinos went with the civil side of the controversy, 
and the appointment of a civil governor July 1, 1901, and the cloth- 
ing him Avith extensive authority had the popular approval. This 
was increased by the appointment to the commission of three Fili- 
pino members. They were the most prominent members of the 
Federal Party. The commission now consisted of the civil governor, 
four other Americans, and three Filipinos. The four American 
members, in addition to their legislative work, were made, respec- 
tively, the heads of four departments — one of finance and justice, the 
second of the interior, the third of commerce and police, and the 
fourth of public instruction. To these departments were assigned the 
appropriate bureaus by which the business of the central govermnent 
was directly carried on. The presence of the Filipinos in the con- 
trolling body of the government offered an excellent opportunity for 
117376—19 2 



18 SPECIAL KEPORTS ON THE PHILIPPINES. 

Filipino influence to affect legislation and brought to the new quasi 
civil government a sympathetic support from the Filipino public 
that included most of those but recently in arms against American 
sovereignty. 

In some Provinces civil government proved to have been prema- 
turely established, notably in Batangas, Cavite, Cebu, and Samar^ 
and in the fall of 1901 the services of the Army were again required 
in those Provinces. But ultimately they became peaceful. The guer- 
rilla forces which continued in arms were finally subjugated or 
brought in through the vigor of the Army and the influence of the 
Federal party, before July 1, 1902, when peace was officially declared 
to exist by your proclamation of amnesty. 

EFFECT ON PERMANENT ORDER OF MUNICIPAL AND PROVINCIAL GOVERN- 
MENTS AND NATIONAL ASSEMBLY. 

Under the head of political education I shall describe the initiation 
and maintenance of municipal and provincial governments in some 
detail, and shall consider them and the assembly as instruments in 
the political education of the Filipinos and comment on their effi- 
ciency and defects as government agencies. I now wish to refer to 
them as part of the so-called policy of " attraction." The Filipino 
people did not expect the liberal and popular provisions of the mu- 
nicipal and provincial codes, and their enactment created the revul- 
sion of feeling that enabled the Federal party to bring on peace. 
The part the people were given in governing both towns and Prov- 
inces stimulated them to efforts in behalf of order that became 
greatly more sympathetic and effective, when, as I hereafter point 
out, the officers of the insular constabulary learned their real func- 
tion of assistance and not independent command. The giving con- 
trol of the provincial board to two elected officials added to their 
sense of responsibility as to order in the Province and was convincing 
of the sincerity of American promise to extend popular control by 
gradual steps. 

The provisions of the organic act passed by Congress in July, 1902, 
confirming President McKinley's policy and the promise of an as- 
sembly if good order was maintained, had a great effect to make the 
Filipino people anxious to preserve order, and no act of the Ameri- 
can Executive was more convincing to the people of the good faith 
of the Administration than your proclamation of the elections at a 
time when an excuse for delay within the law might easily have been 
found in some of the disturbances then existing. The existence and 
influence of the assembly are important continuing factors in the 
maintenance of law and order. 

ESTABLISHMENT OF COURTS. 

Even under the purely military administration before the appoint- 
ment of the commission a military governor had established civil 
courts for the purpose of disposing of civil cases and for such viola- 
tions of law as were not more conveniently disposed of by military 
tribunals. The commission early passed a law dividing the islands 
into some 15 districts, establishing a court of first instance in each dis- 



SPECIAL, KEPORTS ON THE PHILIPPINES. 19 

trict, together with a supreme court of seven to consider appeals from 
the courts of first instance. This system was recognized and adopted 
by Congress in the organic act of July 1, 1902. The policy was pur- 
sued of appointing a Filipino, the first lawyer of the islands, the 
chief justice of the supreme court, together with two Filipino col- 
leagues and four Americans. About the same proportion between 
Americans and Filipinos was observed in the appointment of judges 
of the court of first instance. 

There was great difficulty in finding proper material for the Amer- 
ican judges because there were so few American lawyers in the United 
States who spoke Spanish, and it greatly interfered with the conven- 
ience of hearings if the judge did not know Spanish. However, time 
cured this difficulty, because the American appointees rapidly ac- 
quired a knowledge of the Spanish language sufficient to take testi- 
mony and hear arguments without interpreters. The first years of 
the courts, especially in the country, were almost entirely occupied in 
hearing criminal cases. The civil government very soon adopted the 
position that after a state of peace had been declared in 1902, men in 
arms engaged in looting and robbery should be treated not as insur- 
rectos or as enemies under the laws of war, but merely as violators 
of the local law. In the early days of the insurrection if a body of 
insurrectos was organized in any Province and was captured, their 
guns were taken and after a short imprisonment the men were 
released. This practice had led to a feeling on the part of the igno- 
rant people that they might with impunity resort to arms, and if 
caught thereafter that they would be imprisoned for a short time 
only and then released. The imposition of long sentences, 15 or 20 
years, and the confinement of men in Bilibid prison and the require- 
ment that they should work at hard labor was a most eifective method 
of teaching the ignorant and easily led members of a community the 
difference between a political revolution and the crime of robbery and 
living on one's neighbors by^ force. 

A great number of persons in various provinces were prosecuted 
for banditism. A statute was passed to cover these cases providing 
that a man might be convicted of a felony by conclusive proof that he 
was a member of a band organized to commit robberies, even though 
no evidence was adduced to show any particular robbery in which he 
Avas personally concerned. This has been hailed as a departure from 
the usages of the common law and the spirit of our institutions. It is 
nothing of the kind. It is merely the denunciation of a particular 
kind of conspiracy. It Avas entirely impracticable to identify the per- 
petrators of particular robberies, but it was entirely practicable to 
prove conclusively the existence of a band to commit the robberies, 
and the membership of the particular defendant in that band, 
although his presence at the commission of an overt act it was often 
impossible to show. There is not the slightest reason in hiAv or morals 
why a man thus proved to be a robber should not be punished and 
punished just as severely as the men who were actually taken in the 
commission of the act. The effect of this laAv a\ as to bring to justice 
a great number of criminals in various provinces, and its vigorous 
administration by both the Filipino and American judges under active 
prosecution by Filipino prosecutors did much toward the suppression 
of ladronism. The difficulty was that the number of couA'icted per- 



20 SPECIAL EEPORTS OlST THE PHILIPPINES. 

sons became so large as to strain the capacity of the jails and peni- 
tentiaries in the islands. This congested condition has been met. 
however, now, first, by the establishment of a penal colony in the 
island of Palawan, and, second, by the use of prisoners in several 
vprovinces for the construction of roads. 

After manj^ of those sentenced for highway robbery had served two 
years the Governor (xeneral appointed a commission to go over the 
cases to recommend for pardon those persons who, while guilty of the 
crime charged, were not of the criminal class, but had been led into 
it by duress and undue influence of neighboring brigand chiefs and 
caciques. Quite a large number of these persons were paroled and 
sent back to their homes to give them an opportunity to become good 
citizens. The changing condition of the country and the maintenance, 
of laAv and order are evidenced b}' the fact that the proportion of 
civil cases to criminal cases in the courts of first instance and the 
supreme court is rapidly increasing. It is becoming much easier to 
dispose of criminal cases, while it is the crvdl cases that now clog 
the dockets. The standard in the administration of justice in the 
islands is high. It has been sometimes charged by irresponsible 
13ersons that some of the judges were subject to executive influence. 
An investigation into the matter discloses nofilie slightest evidence of 
the existence of any such evil, and the whole charge rests on the easily 
spread rumor of disappointed litigants or political enemies of the gov- 
ernment. On the Avhole, I am quite sure that throughout the islands 
the judges of the courts, and especially the members of the supreme 
court, have the entire confidence of the public in the justice and sin- 
cerity of their conclusions. No distinction has been made in the hear- 
ing of causes by a Filipino or American judge, and the system moves 
on quietly and effectivelj^ to accomplish the purpose for which it was 
adopted. The influence of the courts in the restoration of order has 
been very important. 

THE PHILIPPINE CONSTABULARY. 

Another step most necessary and useful in the restoration of order 
was the organization of a body of upward of 5,000 men, Filipinos 
officered by Americans, into a constabulary divided into companies 
and organized by Regular Army officers. But little difficulty was 
found in the organization of this body as an efficient fighting and 
scouting force, but it took several years of training, of elimination, 
and of severe discipline before the subordinate, officers, those assigned 
to each Province, were made to understand the proper policy to 
be pursued by them in respect to the native governors and presi- 
dentes of the municipalities who had been elected by the people under 
the municipal and provincial codes. At first there was constant 
friction and suspicion between them, and this did not aid at all the 
work of suppressing ladrones and other disreputable and vicious ele- 
ments of the comnnniity. Year by year, however, improvement has 
been made in this regard, and the lesson has been taught that the 
constabulary are not a military force, but a force of police organized 
by the central government and paid out of its treasury to assist in a 
sympathetic way the native local officers in the work of suppression 
of disorder and lawlessness of their particular localities. When I 



SPECIAL REPORTS ON THE PHILIPPINES. 21 

\\ as in the islands two years ago the native papers were full of con- 
demnation of the constabulary and its severity. During the last two 
years a most renuirkable change lias taken place in the relations be- 
tween the officers and men of this force and the i)i'ovincial governors 
and officers of the towns, and now there is nothing more popular iu 
the islands than the constabulary. 

PRIARS' LANDS. 

A most potential source of disorder in the islands was the owner- 
ship of what were called the " friars' lands " by three of the religious 
orders of the islands — the Dominicans, the Augustinians, and the 
so-called bare-footed Augustinians, known as " Recoletos." These 
lands amounted in all to 425,000 acres, of which 275,000 were in the 
immediate neighborhood of Manila, 25,000 in Cebu, and 125,000 in the 
remote Provinces of Isabela and Mindoro, The tenants on those 
Mdiich were close to Manila numbered some sixty or seventy thousand, 
persons. The attitude of the people toward the friars' lands was 
shown by the fact that the so-called constitutional convention assem- 
bled b}^ Aguinaldo at Malolos nationalized the friars' lands — that is, 
appropriated them to the so-called " Republic of the Philippines.'^ 
With the restoration of order and the establishment of courts the 
representatives of these religious bodies were entitled to go into court 
and recover from tenants the rents which had been in arrears since 
1896, and to eject them from the lands which they had occupied un- 
less they admitted title and continued to pay rent. The occupants 
of the friars' lands resolutely refused to do either, and the Philippine 
government was confronted with the immediate prospect of suits to 
evict 60,000 tenants in those Provinces prone to disturbances and 
insurrection. 

The situation was further strained by the fact that the church, for 
lack of other competent priests, showed every inclination to send 
back to the parishes from which the}^ had been driven as manj^ 
of the friars who had been parish priests as it could. Every 
parish to which a friar priest returned at once began to seethe with 
popular indignation, and threats of violence were constantly made 
toward him. The only solution possible, consistent with the preser- 
vation of vested property rights on the one hand, and the right 
secured by treat}^ to the friars of freedom of religion and freedom of 
speech in any part of the islands, was some arrangement by which the 
land could be taken over by the Government and the church induced 
not to send friars as parish priests to those parishes where riot and 
disturbance were likely to follow. A visit to Rome for consultation 
with the head of the Roman Catholic Church resulted in the Pope's 
sending an apostolic delegate to the islands with adequate powers 
and in subsequent negotiations which ultimately led to the purchase 
of the lands for seven millions of dollars and induced a practice on 
the part of the hierarchy of the church by wdiich they send no friars 
as parish priests into any parish in which the Governor-General 
makes final objection. 

The price paid for the lands was a good round sum. It had to be 
in order to secure them. Congress, convinced of the necessity for 
their acquisition, had provided, in the organic act for the establish- 



22 SPECIAL REPORTS ON THE PHILIPPINES. 

ment of a government in the Philippines, either for their purchase 
or in the alternative for their condemnation by the Government and 
their subsequent disposition on long, easy terms to the occupants. 
The representatives of the Dominican order objected to the con- 
demnation of their lands and employed able counsel to test the valid- 
ity of the provision for condemnation for such a purpose. The point 
made was a serious one and increased the importance of securing the 
lands by purchase, if possible. With the Government as a landlord 
the tenants manifest no disposition to contest its title, save in a few 
isolated cases. I shall not stop now to discuss the present value of 
the lands or their management. I shall refer to that later. It is 
enough for my present purpose to point out that the acquisition of 
these lands by the Government and the adjustment of differences as 
to the use of friars as parish priests have removed a fruitful source 
of disturbance in the Provinces of Cavite, Laguna, Manila, Bataan, 
Morong, and Cebu. 

By another compromise, to which I shall refer in detail later, a con- 
troversy between the Government and the Roman Catholic Church 
as to charitable and educational trusts and in respect to the Spanish- 
Filipino Bank has been settled. At one time this controversy prom- 
ised to contribute to the disorder of the islands. 

There are no other questions between the Government and the 
Roman Catholic Church, unless it can be said that questions of pos- 
session and title to church property arising from the Aglipayan 
schism can be said to involve them. 

Immediately after our negotiations with Leo XIII at Rome were 
found not to include an absolute agreement to withdraw the friars 
from the islands, Aglipay, a former Catholic priest under excom- 
munication, organized a schism from the Roman church. He called 
his church the Independent Filipino Catholic Church. At first the 
schism spread far and wide through the islands, and as the number 
of priests of the Roman Catholic Church by reason of the expulsion 
of the fi'iars had been reduced so that many churches lay open and 
idle, the priests of the Aglipayan schism, with the acquiescence of 
the townspeople in the various villages where the Aglipayans were in 
the majority, assumed possession of land and church buildings which 
had been occupied in Spanish days by the Roman Catholic Church. 
Possession was taken under a claim that the churches belonged to 
the people of the municipality and that they were able to dispose of 
the use of the churches to such religious purposes as they saw fit. 
This course of procedure led to innumerable controversies and to fre- 
quent breaches of the peace and to a bitterness of feeling that did not 
make either for the tranquillity of the islands or their prosperity. 

The executive consistently and properly declined to decide the 
question of title or the right to possession which arose in each case 
after peaceable possession had been taken. This was regarded as 
unreasonable by the authorities of the Roman Catholic Church, but 
was the only possible course which the civil executive could take 
without arrogating to itself judicial powers. Instead of attempting 
to decide these questions the commission passed a law providing for 
their early settlement by suits brought originally in the supreme 
court. One set of these cases has been decided in favor of the Roman 
Catholic Church and others are now nearly ready for decision, so 



SPECIAL REPORTS ON THE PHILIPPINES. 23 

that we may reasonably expect that within six months tlie whole 
matter may be disposed of, and when this is done the religious ob- 
stacles that seemed so formidable when the Philippine government 
was assumed by the United States will have been disposed of per- 
manently and that fruitful source of disturbance and riot and dis- 
content will have ceased. 

I have given in detail the steps taken to restore and maintain order 
in the islands. I have mentioned the vigorous campaign of the Army 
and the moral restraint of its presence in the islands, the promises 
of President McKinley as to gradual extension of self-government, 
the organization of the Federal Party, the institution of municipal 
and provincial governments on a popular plan, the confirmation of 
President McKinley's policy by the act of Congress establishing a 
Philippine government, assuring a national assembly, and your ful- 
fillment of the assurance, the establishment of courts with partly 
American and partly Filipino judges, the punishment of predatory 
bands as civil felons, the establishment and growth of the insular 
constabulary as a sympathetic aid to Filipino municipal and pro- 
Adncial officials in suppressing lawlessness, and, finall}^, the removal 
by satisfactory compromises of the irritating church questions which 
had much to do with causing the original insurrection and, if un- 
settled, were pregnant with disorder. 

PRESENT CONDITION. 

Peace prevails throughout the islands to-day in a greater degree 
than ever in the history of the islands, either under Spanish or 
American rule, and agriculture is nowhere now impeded by the fear 
on the part of the farmer of the incursion of predatory bands. 
Under the policy already stated, inaugurated by the instructions of 
President McKinley to Secretary Eoot, in reference to the establish- 
ment of a temporary government in the Philippines, a community 
consisting of 7,000,000 people, inhabiting 300 different islands, many 
of whom were in open rebellion against the Government of the 
United States for four years, with all the disturbances following 
from robber and predatory bands which broke out from time to 
time, due to local causes, has been brought to a state of profound 
peace and tranquillity in which the people as a whole are lo5''ally 
supporting the government in the maintenance of order. This is the 
first and possibly the most important accomplishment of the United 
States in the Philippines. 

THE POLITICAL CAPACITY AND INTELLECTUAL DEVELOPMENT 
OF THE FILIPINOS UNDER SPAIN AND THE STEPS TAKEN BY 
THE PHILIPPINE GOVERNMENT FOR THEIR GENERAL AND 
POLITICAL EDUCATION. 

Very little practical political education was given by the Spaniards 
to the Filipinos. Substantally all the important executive offices in 
the islands were assigned to Spaniards, and the whole government 
was bureaucratic. The provincial and municipal authorities were 
appointed and popular elections were unknown. The administration 
of the municipalities was largely under the supervision and direction 
of the Spanish priest of the parish. No responsibility for govern- 



24 SPECIAL KEPOKTS ON THE PHILIPPINES. 

ment, however local or unimportant, was thrust upon Filipinos in 
such a way as to give them political experience, nor were the examples 
of fidelity to public interest sufficiently numerous in the officeholders 
to create a proper standard of public dutJ^ The greatest difficulty 
that we have had to contend with in vesting Filipinos with official 
power in municipalities is to instill in them the idea that an office is 
not solely for private emolument. 

There was an educated class among the Filipinos under the Spanish 
regime. The University of St. Thomas, founded by the Dominican 
Order early in the seventeenth century, has furnished an academic 
education to many graduates. The same order, as well as the Jesuits 
and the Augustinians, maintained secondary and primary schools for 
the well-to-do. Quite a number of Filipinos were educated in Spain 
or France. As compared with the youth and young men of school 
and college age in the islands, the number, however, was very small. 
These men were educated either as lawyers, physicians, pharmacists, 
or priests. In politics their knowledge was wholly theoretical. They 
imbibed liberal ideas from the spread of republican doctrines in 
Spain, and the repressive policy of the Spanish Government, of 
course, operated only to encourage them. They were patriotic, and 
soon conceived of the Philippines as a nation. Eizal, a leader of 
Philippine thought, a poet, and a political writer, did not favor 
independence, for he believed his people not yet fitted, but he sought 
reform in the Spanish government of the Philippines and som& 
popular voice in it. 

As the protest against Spanish domination grew, the aspiration for 
complete independence took possession of many, and in the in- 
surrections which followed there were many patriots moved by as 
high ideals as those which have led to revolutions in any country. 
Their conception of liberty, of independence, of government were 
whoUj^ ideal, however. When in the course of events they came to 
actual government they were unable to realize their conceptions, and 
only a one-man power or an oligarchy with class privilege and 
no real civil rights for the so-called serving or obedient class fol- 
lowed. They needed as much education in practical civil liberty as 
their more ignorant fellow countrymen in reading, writing, and arith- 
metic. 

The efforts of the American Government to teach the ignorant their 
ci^dl rights and to uplift them to self-governing capacity finds only a 
languid sympathy from many of the "ilustrados." From them comes 
the only objection to teaching English to the common people, lest they 
lose their national character ; as if it were necessary to keep the people 
confined to 16 barbarous dialects in order that they should be dis- 
tinctly Filipino. The real motive for the objection, whether con- 
scious or not, is in the desire of the upper class to maintain the rela- 
tion of the ruling class to the serving and obedient class. 

The educated Filipino has an attractive personality. His mind is 
quick, his sense of humor fine, his artistic sense acute and active ; he 
has a poetic imagination; he is courteous in the highest degree; he 
is brave; he is generous; his mind has been given by his education 
a touch of the scholastic logicism; he is a musician; he is oratorical 
by nature. 

The educated Filipino is an aristocrat by Spanish association. He 
prefers that his children should not be educated at the public schools, 



SPECIAL REPORTS ON THE PHILIPPINES. 25 

and this accounts for the large private schools which the religious 
orders and at least one Filipino association are able to maintain. In 
arguing that the Philippines are entirely fit for sejf-government now, 
a committee of educated Filipinos once filed with the civil governor 
a written brief in which it w\as set forth that the number of " ilus- 
trados " in the islands was double that of the offices — central, pro- 
vincial, and municipal — and therefore the country afforded two 
" shifts" of persons competent to run the government. This, it was 
said, made clear the possibility of a good government if inde])endence 
was granted. The ignorance of the remainder of the people, admitted 
to be dense, made no difference. I cite this to show of how little 
importance an intelligent public opinion or an educated constituency 
is regarded in the community and government which many of the 
educated Filipinos look forward to as a result of independence. I 
do not say that there are not notable exceptions to this among leading 
Filipinos, but such persons are usually found among those who are 
not so impatient to lose American guidance in the government. In- 
deed, I am gratified to hear that the first bill which passed the assem- 
bly was an appropriation of a million pesos for barrio schools. On 
the whole, however, there is reason for believing that were the gov- 
ernment of the islands now turned over to the class which likes to. 
call itself the natural ruling class, the movement initiated by the 
present government to educate the ignorant classes would ultimately 
lose its force. The candor with which some of the representatives 
of the independista movement have spoken of the advantage for 
governmental purposes of having 80 per cent of the people in a serv- 
ing or obedient class indicates this. 

No one denies that 80 per cent of the Filipino people are densely 
ignorant. They are in a state of Christian tutelage. They are child- 
like and simple, with no language but a local Malay dialect spoken in 
a few Provinces; they are separate from the world's progress. The 
whole tendency under the Spaniards was to keep them ignorant and 
innocent. The Spanish public school s.ystem was chieflj^ on paper. 
They were for a long time subject completely to the control of the 
Spanish friar, who was parish priest and who generally did not 
encourage the learning of Spanish or great acquaintance with the 
world at large. The world owes to the Spanish friar the Christiani- 
zation of the Filipino race. It is the only Malay or oriental race that 
is Christian. The friars beat back the wave of Mohammedanism 
and spread their religion through all the islands. They taught the 
people the arts of agi'iculture, but they believed it best to keep them 
in a state of innocent ignorance. They did not encourage the coming 
into the Filipino local communities of Spaniards. They feared the 
influence of world Imowledge. They controlled the people and 
preached to them in their own dialects. They lived and died among 
them. 

The friars left the people a Christian people — that is, a people with 
•western ideals. They looked toward Rome and Europe and Amer- 
ica. They were not like the Mohammedan or the Buddhist, who 
despise western civilization as inferior. They were in a state of 
tutelage, ripe to receive modern western conceptions as they should 
be educated to understand them. This is the reason why I believe 
that the whole Christian Filipino people are capable by training and 



26 SPECIAL REPORTS 01^ THE PHILIPPHSTES. 

experience of becoming a self-governing people. But for the present 
they are ignorant and in the condition of children. So, when the 
revulsion from the Spanish domination came, as it did, the native 
priest or the neighboring " ilustrado " or " cacique " led them into the 
insurrection. They are a brave people and make good soldiers if 
properly led. They learn easily, and the most striking fact in our 
whole experience in the Philippines is the eagerness with which the 
common Filipino agricultural laborer sends his children to school to 
learn English. 

There is no real difference between the educated and ignorant Fili- 
pinos that can not be overcome by the education of one generation. 
They are a capable people in the sense that they can be given a normal 
intellectual development by the same kind of education that is given 
in our own common-school system. Now they have not intelligence 
enough to exercise the political franchise with safety to themselves 
or tlteir country ; but I do not see why a common-school education in 
English, with industrial teaching added, may not make the children 
of these people capable of forming an intelligent public opinion 
needed to sustain a popular government if, at the same time that the 
oncoming generations are being educated in schools, primary and 
industrial, those who are intelligent are being given a political educa- 
tion by actually exercising the power of the franchise and actually 
taking part ill the government. 

As will be seen hereafter, the Philippine government has not funds 
enough to educate in primary and industrial schools all the present 
generation of school age, and unless some other source of funds than 
governmental revenues is found it will take longer than a generation 
to complete the primary and industrial education of the common 
people. Until that is done, we ought not to lift our guiding hand 
from the helm of the ship of state of the Philippine Islands. With 
these general remarks as to the present unfitness of the Filipino 
people for popular self-government and their capacity for future 
development so that they may, by proper education, general and 
political, become a self-governing people, I come to the methods pur- 
sued by the Philippine government in furnishing to the Filipinos 
the necessary education. I shall consider the subject under two 
heads : 

1. Education in schools for the youth of school age. 

2. Practical political education by the extension, step by step, of 
political control to an eligible class. 

first: education in schools. 

Reference has already been made to the fact of the very great 
ignorance and illiteracy that prevails among the Filipino people. It 
is not too much to say that knowledge of Spanish is a fairly good 
indication whether an individual can be said to be educated. Sta- 
tistics show that but 7 per cent of the people of the islands speak 
Spanish; all the others speak in the varying dialects, which among 
the civilized people number some 16. The Philippine people should 
be educated sufficiently to have a common medium of communica- 
tion, and every man, woman, and child should have the benefit of 
the primary education in that common medium. Reading, writing. 



SPECTAT. REPORTS ON THE PHTLTPPTNES. 27 

and arithmetic are necessary to enable the rural laborer and the small 
hemj^, coconut, or tobacco farmer to make contracts for the sale of 
his products and to know what price he sliould receive for that which 
he has to sell. With this knowledge, too, he will soon be able to know 
his own rights and to resist the absolute control which is now fre- 
quently exercised over him by the local cacique. 

The necessit}^ for a common-school system was emphasized in the 
instructions of President McKinley to Secretary Eoot, and those re- 
sponsible for the government of the islands have been earnest and 
active in seeking to establish one. The language selected for the 
schools is English. It is selected because it is the language of busi- 
ness in the Orient, because it is the language of free institutions, and 
because it is the language which the Filipino children who do not 
Icnow Spanish are able more easily to learn than they are to learn 
Spanish, and it is the language of the present sovereign of the islands. 
The education in English began with the soldiers of the American 
Army, one of whom was detailed from each company to teach schools 
in the villages which had become peaceful. When the commission 
assumed authority it sent to the United States for 1,000 American 
teachers, and after the arrival of these pioneers in the islands a 
system of primary schools was inaugurated together with normal 
schools. 

Public educational work in the islands is performed under the 
bureau of education, with the central office located in Manila, having 
37 divisions, each in charge of a division superintendent, embracing 
in all 379 school districts each in charge of a supervising teacher. 
The total number of schools in operation during the past year was : 
Primary schools, 3,435; intermediate schools, 162; arts and trades 
schools, 32 ; agricultural schools, 5 ; domestic-science schools, 17 ; and 
provincial high schools, 36 ; making a total of 3,687 and an increase 
from the previous year as follows: 327 primary schools, 70 inter- 
mediate schools, 15 arts and trades schools, 3 agricultural schools, and 
9 domestic-science schools. There are engaged in the teaching of 
these schools at present 717 permanent American teachers and 109 
temporary appointees, and all of these are paid out of the central 
treasury. In addition to these there are what are known as Filipino 
insular teachers, numbering 455, who are paid out of the central 
treasury. In addition to these there are 5,656 municipal Filipino 
teachers, all of whom speak and teach English and who are paid out 
of the treasuries of the municipalities. 

The 6,000 Filipino teachers who are now teaching English have 
received their English education from our normal schools or our 
American teachers. Their number is growing, and they represent 
and are the most valuable educational asset we have acquired in work- 
ing out our school system. The average annual salary of the Filipino 
insular teacher is 533.2 pesos a year, while that of municipal teachers 
is 210.36 pesos. The Filipino insular teachers are drawn from gradu- 
ates of normal schools and also from the students sent by the Govern- 
ment and at the expense of the Government to the United States to be 
educated there. Forty-six of these students have recently returned 
from the United States and have been appointed as insular teachers 
at salaries ranging from 840 to 960 pesos per annum. The average 
paid to the American teacher is about $1,200 per annum. The total 



28 SPECIAL KEPORTS ON THE PHILIPPINES. 

enrollment for the year, inclusive of the Moro Province — the schools 
in which are conducted under a separate system — was 479,978. This 
was in the month of March at the close of the school year, when the 
enrollment reached its highest point. The average enrollment total 
by months was 346,245, of whom 62 per cent were boys and 38 per 
cent were girls. The average daily attendance was 269,000, or a per- 
centage of attendance of about 85 per cent. The highest percentage 
of attendance was 94, in the city of Manila. The lowest percentage 
in some of the provinces w^as 78. The attendance and enrollment in 
schools begins in August, which is the beginning of the school year, 
and ends in March. As August is one of the wet months, the attend- 
ance begins at the lowest figure and increases gradually into the dry 
season until its highest point at the close of the school year in March. 

The central government this year for school purposes and construc- 
tion of schools has appropriated 3,500,000 pesos. The maintenance of 
primary schools is imposed by law" upon the municipalities, and in- 
volves a further expenditure of nearly a million and a half pesos. In 
order to relieve distress incident to agricultural depression, it was 
found necessary to suspend the land tax, a part of the proceeds of 
which by mandatory provision of law was appropriated to the support 
of municipal schools. The central government in the first year appro- 
priated a sufficient sum from the internal revenue to meet the deficit 
caused by the failure to impose the land tax, but in 1907-8 it was only 
able to appropriate 50 per cent of the amount which would have been 
raised by the land tax, and next year no such appropriation will be 
made, and it will be left optional with the province whether the land 
tax shall be imposed or not. 

The great difficulty in the matter of education in the islands is the 
lack of funds to make it as extended as it should be. The suspension 
of the land tax is subjecting the educational system to a crisis, but 
the revival of agriculture in many parts of the islands leads to the 
hope that the crisis may be successfully passed. It would be entirely 
possible to expend for the sole benefit of the Philippine people, w^ith- 
out the least waste, upward of two or three millions of dollars annu- 
ally in addition to all that the government of the Philippine Islands- 
central, municipal, and provincial — can afford to devote to this object 
We are not able to educate as they should be educated more than a 
half of the youth of school age in the islands. The government, Avhile 
contributing to the maintenance of high schools in each province, is 
devoting its chief attention to the spread of primary education, and 
in connection with primary education, and, at its close in the inter- 
mediate schools, to industrial education. Primary and industrial 
education carried on until the child is 14 or 15 years old is thought to 
be the best means of developing the Filipino people into a self-sus- 
taining and self-governing people, and the present governinent has 
done all that it has been possible to do in developing and maintaining 
a proper system for this purpose. The tendency toward the develop- 
ment of industrial education the world over lias created such a de- 
mand for industrial teachers as to make it impossible for the Philip- 
pine government to secure as many as are needed for the purpose in 
the islands, and in order to have these industrial teachers it must take 
the time to educate them as such, just as it did the Filipino primary 
teachers in English. 



SPECIAL KEPORTS ON THE PHILIPPINES. 29 

There are now in the ishmds, including art and trade schools, agri- 
cultural schools, and domestic-science schools, at least one industrial 
school to every Province, and it is the ])urpose to increase this number 
as rapidly as resources and opportunity will permit. Under the in- 
fluence of the traditions of the Spanish regime, when manual labor 
seems to have been regarded as an evidence of servitude, it was at 
first impossible to secure pupils for the great manual training school 
in Manila. Boys preferred to be " escribientes " or clerks and gentle- 
men rather than to learn to Avin a livelihood by the skill of their 
hands, but this has been rapidly overcome. In the insular school 
of arts and trades in Manila, wdiere the plant and equipment is quite 
satisfactory, instruction is now given some 3.50 pupils in English, 
arithmetic, geography, mechanical drawing, Avoodworking (bench 
work, carving, turning, and cabinet making), ironworking bench 
work, filing, blacksmithing, and iron machine work), and finishing, 
including painting and varnishing, to which will be added next year 
boat building and wheelwrighting. At the present time there are on 
the waiting list some 200 pupils who seek admission but for Avhom 
no places are available. A large insular agricultural school is to 
be established in Manila for giving instruction in practical agricul- 
ture, and the money, 100,000 pesos, necessary for the building and 
construction has already been appropriated. 

The influence of the primary instruction in English is shown 
throughout the islands by the fact that to-day more people through- 
out the islands, outside of Manila and the large cities, speak Eng- 
lish than speak Spanish. A noticeable result of the government's 
activity in the establishment of English schools has been the added 
zeal in teaching English in private educational establishments. A 
Filipino school managed and taught only by Filipinos, called " Liceo," 
has some 1,500 pupils in Manila, and English is regularly taught as 
part of the curriculum of that school; the Dominican order of friars, 
which is primarily an educational order, has schools in and about 
Manila with upward of 2,000 students, and English is now made a 
very important part of the curriculum of those schools. The Jesuits 
also have tAvo A^ery large schools in Manila, embracing some 1,000 or 
1,500 pupils draAvn from all parts of the islands, in AAliich English is 
made an important branch of the study. There is considerable com- 
23etition in this matter and there seems noAv to be a united effort to 
spread the knoAvledge of English in accordance with the government's 
policy. At times, as already intimated, a cliscordant note is heard in 
the suggestion that the American Government is seeking to deprive 
the Filipino of his native language. As his natiA^e language is really 
15 or 16 different dialects, this does not seem a great deprivation. It 
is possible that some effort will be made to include in the primary 
instruction the reading and writing of the local dialect in the local 
schools. Xo objection can be macle to this unless it shall interfere 
Avith the instruction in English, Avhich it is hoped it may not do. 

Should Congress be anxious to facilitate and hurry on the work 
of redeeming the Philippine Islands and making the Filipino people 
a self-governing community, it could take no more effective step than 
a permanent appropriation of two or three millions of dollars for 
ten or fifteen years to the primary and industrial education of the 
Filipino people, making it conditional on the continued appropria- 



30 SPECIAL REPORTS ON THE PHILIPPINES. 

tion by the Philippine government. of the same amount to educa- 
tional purposes which it has devoted and is now devoting; annually 
to that purpose. The influence of the educational system introduced 
has not only been direct in the spread of education among the younger 
of the present generation, but it has also been an indirect means of 
convincing the Filipino people at large of the beneficent purpose 
of the American Government in its remaining in the Philippine 
Islands and of the sincerity of its efforts in the intei-est of their people. 

FILIPINO CADETS AT WEST POINT. 

Section 36 of the act of Congress, approved February 2, 1901, 
referring to Philippine Scouts, provides that — 

When, in the opinion of the President, natives of tlie Philippine Islands 
shall, by their services and character, show fitness for command, the President 
is authorized to make provisional appointments to the grades of second and 
first lieutenants from such natives, who, when so appointed, shall have the 
pay and allowances to be fixed by the Secretary of War, not exceeding those 
of corresponding grades of the Regular Army. 

As it is thought that better results will be obtained if a few young 
Filipinos, especially selected, be appointed to the United States Mili- 
tary Academy with a view to their being commissioned officers of 
scouts upon graduation, I strongly recommend that Congress, by 
appropriate legislation, authorize the appointment of seven young 
Filipinos, or one for about every million of inhabitants of those 
islands, as cadets at the Military Academy at West Point. This 
action on the part of Congress would, in my judgment, tend to fur- 
ther increase the zeal and efficiency of a body of troops which has 
always rendered faithful and satisfactory services. 

second: practical political education. 

There is no doubt that the exercise of political power is the best 
possible political education and ought to be granted whenever the 
pupil has intelligence enough to perceive his own interest even in a 
rude practical way, or when other competent electors are sufficiently 
in the majority to avoid the injury likely to be done by a government 
of ignorance and inexperience. The Philippine government con- 
cluded that the only persons in the Philippines who had intelligence 
enough to make their exercise of political power useful to them as 
an education and safe as a governmental experiment were those who 
spoke and wrote English or Spanish, or who paid $7.50 a year taxes, 
or whose capacity had been recognized in Spanish times by their 
appointment as municipal officials. Adult males who came within 
these classes, it was thought, ought to begin their political education 
by assuming political responsibility, and so they were made electors 
in municipal, provincial, and assembly elections, and embraced, as 
near as it can be estimated, about 12 to 15 per cent of the adult male 
population. Of course, as the common school education spreads, the 
electorate will increase. 

Let us now examine the political education which has been given 
in practice to these eligible electors and the results. 



SPECIAL EEPORTS ON THE PHILIPPINES. 31 



JlUNlCH'AhlTlES AND Pl<()\ INCES. 



By the municipal code the okl municipalities under the Spanish 
regime, which resembled the townships of the West and the towns of 
Xew England, were authorized to reorganize under the American 
Government. The^y consisted generally of the poblacion, or the most 
centrally located and most populous settlement, with a number of 
barrios or outlying wards or villages, all within the municipality and 
under its control. The provisions of the code did not differ materially 
from those of similar codes in the United States, except that wherever 
possible and practicable the unobjectionable customs of the country 
were recognized and acquiesced in formally in the law. The towns 
were divided into classes and the salaries of the officials were lim'ited 
accordingly. The provincial code provided for the organization of 
governments in the provinces which had been recognized as Provinces 
under the Spanish regime. Under the original provisions of that 
code the government of the Province — legislative and executive — was 
under a provincial board, consisting of a governor and treasurer and 
a supervisor of roads and buildings. Other appointed officers were 
provided, as the prosecuting attorney and the secretary of the Prov- 
ince, who did not sit on the provincial board. The governor was 
originally elected by the councilmen of all the towns of the Province 
assembled in convention, they themselves having previously been 
elected by the people. The treasurer and supervisor were each selected 
and appointee! under the rules adopted in accordance with the merit 
system provided in a civil-service law, which was among the first 
passed by the commission. 

One of the early difficulties in the maintenance of an efficient gov- 
ernment in the Provinces was the poverty of the Provinces and the 
lack of taxable resources to support any kind of a government at all. 
It was soon found that the provincial supervisor, who, it was hoped, 
might be an American engineer, was too expensive a burden for the 
Province to carry. For a time the district superintendent of educa- 
tion of the Province was made the third member of the provincial 
board instead of the supervisor, whose office was abolished. This, 
however, did not work well, because the time of the superintendent 
was needed for his educational duties. Subsequently, therefore, it 
was thought wise to provide a third member of the board, who served 
with but little compensation and who was elected as the governor was 
elected. The system of electing the governor by convention of coun- 
cilmen of all the towns of the Province was changed, so that now the 
governor and the third member of the board are elected by direct 
popular vote, while the treasurer is still appointed. It will be 
seen that, in this way, the government of the towns is completely 
autonomous, subject only to visitation and disciplinary action of the 
governor of the Province and of the Governor General on appeal. 
The provincial government now, though not originally, is completely 
autonomous in the sense that a majority of the board which governs 
the Province are elected by the people. The duties of the provincial 
treasurer are burdensome, complex, and important to such a degree 
as to make it impossible thus far to find Filipinos who have been able 
to master the duties of the office and to give satisfaction therein, al- 
though there are quite a number of Filipino assistant treasurers and 



32 SPECIAL REPORTS ON THE PHILIPPINES. 

subordinates in the office of treasurer who give reasonable ground to 
expect that the American treasurers may be in a reasonable time 
supplanted by Filipino treasurers. 

The question now arises what has been shown in the government of 
these municipalities and of the provinces in respect to the capacity of 
the Filipinos for complete self-government in local matters? It is 
undoubtedly true that the municipalities would be much more effi- 
cient had the policy been pursued of appointing Americans to the 
important offices in the municipalities, but there would have been 
two great objections to this course, one that the municipal govern- 
ment would not have attracted the sympathetic attention of the peo- 
ple as the present municipalities have — and we would thus have lost 
a valuable element in making such government a success — and the 
other that the educational effect upon the people in training them for 
self-government would have been much less. 

When I say that the development of municipal government in the 
Philippines has been satisfactory, I am far from saying that it has 
been without serious defects. All I mean is that considering the two- 
fold object in view — first governmental, second educational — the re- 
sult thus far, with all its shortcomings, shows progress toward both 
ends and vindicates the course taken. 

Up to the time of our occupation, the government had represented 
to the Filipino an entity entirely distinct from himself, with which he 
had little sympathy and which was engaged in an attempt to obtain 
as much money as possible from him in the form of taxes. He had 
been taught to regard an office as the private property of the person 
holding it and in respect to which ordinary practice justified the 
holder in making as much profit from it as he could. The idea that a 
public office is a public trust had not been implanted in the Filipino 
mind by experience, and the conception that an officer who fails in his 
dut}^, by embezzlement or otherwise, was violating an obligation that 
he owed to each individual member of the public he found it difficult 
to grasp. He was apt to regard the robbing of the government by one 
of its officers as an affair in which he had little or no interest and in 
which, not infrequently, his sympathies were against the government. 
As a consequence, the chief sense of restraint felt by municipal offi- 
cials in handling public funds comes from a fear of inspection by the 
central government and its prosecution. The fear of condemnation 
by the public opinion of the local community has a much less deter- 
rent force, even if the official is to seek reelection. The sense of re- 
sponsibility for the government they control and whose officers they 
elect is brought home to the people of a municipality with slowness 
and difficulty. This is the political education that is going on in the 
Filipino municipalities. We are making progress, but we must be 
patient, for it is not the task of a day to eradicate traditions and ideas 
that had their origin in a system of government under which this 
people lived for centuries. 

Hence when we find that there is still a considerable percentage of 
Filipino municipal officers who have to be removed and prosecuted 
for embezzlement, we must not be discouraged. Early in the Ameri- 
can occupation we had to prosecute 16 or 17 American provincial 
treasurers for defalcations in public funds. It was bitterly humili- 
ating for the dominant race to furnish such an example, when we 



SPECIAL, REPORTS ON THE PHILIPPINES. 33 

were assuming to teach the Filipinos tiie art of self-government. 
The American embezzlers were all promptly sent to Bilibid Peniten- 
tiary for long terms. This had an excellent eft'ect npon both Ameri- 
cans and Filipinos in the islands. T\m defalcations were due to a 
lack of good material available for these positions in the islands. 
To-day the American provincial treasurers are of the highest order 
of public servants and are a credit to the American name. Their 
example has been of the utmost benefit in the training of Filipino 
municipal and provincial officials. 

Another difficulty arising from a sindlar cause that we have had to 
meet and overcome has been the disposition of municipal councils to 
vote all of the available funds for the payment of their own salaries 
and leave nothing for the improvement or repair of roads, the con- 
struction of buildings, or the payment of school-teachers, and this 
although the law nuiy, by mandatory provision, have set aside certain 
definite shares of the public funds for such purposes. These evils 
have had to be remedied by placing the funcls in the hands of the 
provincial treasurer so as to secure the payment of the amount re- 
quired by law to be dexoted to educational purposes and by imposing 
upon the discretion of connnon councils to vote salaries from their 
funds a limitation that the total of salaries shall not exceed a certain 
percentage of the total funds in control of the town. 

Tlie people of the towns seeui fully to appreciate the value of roads, 
but when it comes to exerting themselves and denying themselves 
for the purpose of securing the great benefit of good roads, they have 
not thus far ner\ed themselves to the sacrifice. Many miles of road 
have been constructed by the central government and then turned over 
to the municipalities for maintenance, with the result that in one or 
two years of the torrential rains the roads have become nothing 
but quagmires without any work of maintenance or repair done on 
them. One of the common means throughout the United States lor 
building roads or repairing them is to require all male adults to work 
upon the roads four or five days of the year, or jDerhaps a longer period, 
or to commute the work by payment of a tax. This would be the 
natural method of repairing roads in the Philippines; but the diffi- 
culty is that it was the method adopted by the Spaniarcis, and in the 
Spanish times the power of the local authorities to direct free labor 
upon the roads for a certain period of time was so greatly abused and 
perverted to the seeking of personal vengeance and the private profit 
of the local authorities that it has been impossible to obtain any 
popular support for a system based on the same principle, and good 
roads have been allowecl to go to destruction rather than to run the 
risk of a recurrence of the old abuses. 

A difficulty in connection with the maintenance of roads may be 
mentioned here. The old-time method of transportation in the Phil- 
ippines was by a carabao or oxcart with a rigid axle and with solid 
wheels, the rims of which were so narrow as to cut like a knife into 
any road over which they traveled. Laws have been passed from 
time to time imposing a penalty for using wheels on public roads 
with tires less than a certain width, but it has not been possible to 
secure such an administration of the law by the provincial govern- 
ments as to prevent the continuance of this abuse, although means 
have been taken to furnish at a very reasonable rate sets of wheels 
117376—19 3 



34 SPECIAL REPORTS ON THE PHILIPPINES. 

with tires of sufficient width to aA^oid road destruction. Local officials 
have been loath, when dependent for their continuance in office upon 
the votes of their fellow citizens, to enforce a law the wisdom of 
which they fullj^ recognize, but the unpopularity of which they 
also know. 

It has been found that sanitai*y measures can not be safely in- 
trusted to municipal authorities for enforcement whenever emer- 
gencies arise, but that some local agency of the central government 
must be created for the purpose. At first full power was given to 
the municipality to determine by ordinance where cemeteries might 
be established, having regard to the health of the town. This proved 
a most convenient instrument for partisan abuse in the religious 
controversies arising between the Eoman Catholics and the Agli- 
payans. An Aglipayan municipal council would require by ordi- 
nance the immediate closing of a Roman Catholic cemetery, although 
it was not in the least dangerous to health, and then would permit 
an Aglipayan cemetery much nearer the town and in a really objec- 
tionable place. Partisans of the Roman Church in control of other 
municipalities would abuse their powers in the same way. The con- 
sequence was that the central and provincial authorities had to be 
given direct supervisory control of this matter. 

Another defect in many Filipino towns I have already referred to 
is the evil of caciquism. Too often the presidente and other town 
officers use their offices to subject the ignorant residents of their re- 
spective towns to their business control in the sale of farm products. 
The officer acts as the middle man in the sale and takes most of the 
profit from his constituent. The evil is hard to reach because the 
same power which compelled the sale can usually compel silence and 
no complaint is heard from the victims until, dimly realizing the 
injustice done them, they resort to criminal outbreaks and bloody 
vengeance. While it is too much to hope for the complete eradication 
of this abuse until the laborer shall acquire enough education to know 
his rights before the law and how to assert them, there has been much 
improvement in this regard since the American occupation. 

The evil of caciquism shows itself in a more flagrant form when 
Filipino municipal or even provincial officials are vested with gov- 
ernmental control over non-Christian tribes, or others not of their 
own race, scattered through the Christian Filipino provinces. These 
people living in small settlements are slowly working toward a bet- 
ter civilization under the influence of education and are capable of 
much greater progress if properly treated. Such settlements were 
originally placed under the regular Filipino provincial and munici- 
pal governments within whose territorial jurisdiction they happened 
to be, but the abuses and oppression to which they were subjected 
necessitated an entirely different policy with respect to them and the 
organization of separate governments controlled directly from Ma- 
nila under the interior department. Mr. Worcester, the secretary of 
the interior, has given especial attention to the care and development 
of these non-Christian tribes. It has been necessary to organize in 
Northern Luzon three or four subprovinces within the territorial 
limits of the Filipino Provinces and to secure the protection of the 
non-Christians by the appointment generally of an American lieu- 
tenant governor. This is also true in the Province of Misamis and 



SPECIAL REPORTS ON THE PHILIPPINES. 35 

of Siirigao, in Mindanao, where it was found impossible to induce 
the provincial officers to spend the money appropriated out of the 
insular treasury for the benefit of the people for educational and 
road improvements directed by the central authority. The fact that 
the recent, and for a time seemingly incurable, tendency to disturb- 
ance in Samar has grown out of a similar cause in that island I have 
already commented on in connection with another subject. 

The city of Manila has not been given autonomous government. 
It is under the control of a municipal board of five persons appointed 
by the central government, and is governed therefore as Washington 
or the City of Mexico is governed. In the proper improvement of 
Manila some six or eight millions of dollars had to be expended, and 
much business experience and foresight were required to build the 
new waterworks and the new sewer system, to repave the streets, to 
canalize the esteros, or creeks, to organize an effective police force 
and a new fire department. It was thought that it would not be safe 
to intrust the conduct of such important business matters to a body 
selected by the electrorate of Manila for the first time. The city of 
Manila has been well governed. Very large sums of money have 
been expended in most extensive improvements, and not the slightest 
scandal or dishonesty has been charged in any of the city adminis- 
tration. It has offered a most useful model for other municipalities in 
the islands to follow, and has lent her engineers, her policemen, and 
her firemen to other towns to help the latter to better organization. 

This review of shoi'tcomings in municipal governments in the 
Philippines should not have the effect of discouraging those who are 
interested in the success of the experiment. They should be reminded 
that in the United States municipal government has not been such a 
shining success. Moreover, the defects pointed out are not found in 
all Filipino towns. They have been referred to only to qualify prop- 
erly the statement, M'hicli I do not hesitate to make, that autonomous 
municipal governments are maldng good progress and are gradually 
accomplishing the purposes for which they were created, though not 
so efficiently as with a people more used to governing themselves, 
more trained and educated in the assertion of their rights, and imbued 
with a higher standard of public duty. • When those responsible for 
the policy of autonomy in municipal and provincial governments as- 
sert that it is progressing successfully, they find their words to be 
construed by enthusiastic theorists, who are convinced a priori of the 
comj^lete fitness of the Filipinos to govern themselves, as completely 
establishing the correctness of their view ; and when, on the other 
hand, they point out the defects in such local governments they meet 
the ciT made by pessimists and by thick and thin adherents of the 
English crown-colony system that this is an admission of failure and 
a concession that we ha^e gone far too fast in intrusting local gov- 
ernmental power of the Filipinos. 

The truth, as I conceive it, lies between the two extreme positions, 
and while the policy adopted does not secure the best municipal gov- 
ernment which might be secured under American agents, it does ijro- 
vide a fairly good government, with a training and experience and 
educational influence upon the people which is slowly but progres- 
sively curing the defects incident to a lack of political training and 
proper political ideals. The result indicates neither that the Filipinos 



36 SPECIAL EEPOETS ON THE PHILIPPINES. 

are fitted at once for coniplete self-government nor does it justify 
the view that they nia.y not be ultimately made capable of coniplete 
self-government by a gradual extension of partial self-government 
as they may become more and more fit to execise it. 

When we come to the provincial governments, we naturally have 
to deal with a higher order of public servants, and although we here 
and there find the defects I have described as occurring in municipal 
g-Qvernments, they are less glaring and less discouraging. The truth 
is, that with the guidance of the provincial treasurer, who is an 
American, and the sense of added responsibility that the presence of 
two Filipinos in the provincial board has instilled in them, the pro- 
vincial officials begin to take pride in- the good condition of their 
Province. This has been stimulated by close and constant correspond- 
ence between them and the central government at Manila, repre- 
sented by the assistant executive secretary, Mr. Frank Carpenter, in 
Avhich provincial matters are discussed, hj an annual conference of 
provincial governors at Manila, and by conditional contributions 
from the central government to provincial funds for various forms of 
provincial efficiency, and is evidenced by the greater amounts devoted 
by the Provinces to the construction of public buildings, the repair 
and construction of roads and bridges, and by the husbanding of 
resources and the keeping down of salaries. 

The system of examination of the finances of the municipalities 
and of the Provinces is now, as conducted in the islands, very com- 
plete, and in one large printed volume is published the balance sheet 
of every Province and of every municipality in the islands for each 
fiscal year, so that it is possible to take a bird's-eye view each year of 
the financial progress made in the management of each Province, and 
town. The improvement in the financial condition of the Provinces 
over and above what it was four or five years ago itself speaks 
forcibly in favor of the progress which has been made by Filipinos 
in provincial government. 

One of the early difficulties in provincial government already 
pointed out was the lack of tax resources, which prevented payment 
of adequate salaries or the making of much-needed improvements. 
With the sympathetic aid and suggestion of the central government, 
and by the voluntary assumption of greater taxes by the people, 
all the Provinces, save two or three, have made themselves self- 
supporting and have been enabled to pay good salaries. They differ 
largely in the amomit of money that they have been able to devote 
to the construction of public buildings and to roads and bridges, but 
they are certainly beginning to appreciate the necessity for effort in 
this direction, and while they have refused thus far to adopt the 
system of a few days' enforced labor commutable by taxes, they are 
gradually coming to the adoption of a poll tax for public roads 
which in its essence and its alternatives will ultimately be an equiva- 
lent of such a system. 

The report of the auditor of the islands shows a most gratifjdng 
improvement in the financial condition of the towns and Provinces 
for the last five years. While the financial condition is not invariably" 
indicative of the general character of a municipal or provincial gov- 
ernment a steady improvement in it from year to year is reasonably 
good evidence that matters of government are mending in every way. 



SPECIAL REPOETS ON THE PHILIPPINES. 37 

The question of roads tind bridges has not yet been solved in the 
Philippines. There remains yet an enormous amount of labor and 
capital to be expended for this purpose, but the seeds have been sown 
which I am convinced will lead, under the executive force and 
great interest of Mr. W. Cameron Forbes, the secretary of com- 
merce and police, to the adoption of a caminero system of road re- 
]iairs and maintenance which will make the intercommunication by 
\\ao-on road between the various parts of the ^•arious islands satis- 
factory. I shall not stop to dwell on the great inherent difficulty 
that there is in the construction and repair of roads in the Philip- 
pines. The absence of suitable material and the destructive effect of 
evei-y wet season sufficiently account for the present unsatisfactory 
condition in this respect. The principle rigidly adopted and en- 
forced now is, however, that no bridge and no public building shall 
be constructed of anything but permanent materials — either con- 
crete, hardwood, or metal — or iron or steel, and that no road shall 
be built except in a manner which shall enable local authorities, with 
reasonable expense, to keep it in permanent repair. In times past 
the necessity for haste and supposed economy has led to the use of 
softer woods and temporary methods of construction, which are now 
tui-ning out to be much more costly than if the original expenditure 
had been greater. ^ 

CIVIL SERVICE. V 

The organization and maintenance of the central government were 
directed not only with a view to its efficiency but also to its educa- 
tional effect upon the Philippine people. This is shown in the ap- 
pointment of three Filipinos to constitute three-eighths of the insu- 
lar legislature, as well as by the opportunity offered to Filipinos to 
enter the civil service under a civil-service law embodying the merit 
system. In the beginning it was difficult to work Filipinos into the 
bureaus of the central government, because few of them knew Eng- 
lish and fewer understood the American business and official methods, 
which, of course, obtained in the new government. As the years 
went on, however, under great pressure from the commission, the 
proportion of Filipinos in the service was increased from year to 
year. Many natives had learned English and had shown an in- 
creasing aptitude for the work of the civil service. Still in many 
of the bureaus the progress of Filipinos to the most responsible 
places is necessarily slow, and the proportion of them to be found 
in the positions of high salaries is not as large as it ought to be in the 
near future. The winnowing-out process, however, is steadily reduc- 
ing the American employees in the civil service. It has become a. 
body of highly deserving, faithful public servants, whom, it is hoped, 
the Philippine Government will make permanent provision for by 
secure tenure for a certain number of years with a reasonable retiring 
pension. 

As was inevitable in the complete organization of a government 
effected within a few months, experience indicated that greater eccr.- 
omy might be secured b}^ a reduction in the number of bureaus and 
bureau chiefs, by the consolidation of offices and bureaus, and by the 
still further substitution of competent Filipinos for higher-priced 
Americans. 



38 



SPECIAL REPORTS ON THE PHILIPPINES. 



It is now nearly three years ago, therefore, since a committee of 
insular officials with Commissioner Forbes as chairman was appointed 
to make a vigorous investigation into the entire governmental sys- 
tem. The committee made radical recommendations as to curtail- 
ment, most of which were adopted and resulted in a very material 
decrease in the cost of government and increase in the proportion of 
Filipino employees. 

In the department of justice, including the judiciary, the propor- 
tion of Filipinos had always been high. The chief justice of the 
supreme court and two of his associates were Filipinos, while nearlj^ 
half of the judges of the courts of first instance were also natives. 
All but two of the prosecuting attorneys in the 35 provinces, all the 
justices of the peace, and nearly all the court officers were Filipinos. 
For two years the attorney general of the islands has been a Filipino. 

The changes in the proportion of Filipino civil servants to the 
whole number from year to year can be seen in the following table : 





Americans. 


Filipinos. 


1901 


2,044 


2,562 


1902 1 




1903 


2,777 
3,228 
3,307 


2, 697 
3,377 


1904 -- 


1905 


A 


4,023 


1906 1 




1907 


2,6i6 


3,902 







1 statistics not available. 



CIVIL RIGHTS. 

Before discussing the provision for the national assembly and its 
influences, educational and otherwise, I must refer to the effort of 
President McKinley to extend to the Filipinos the guaranties of life, 
liberty, and property, secured by the Federal Constitution to those 
within Federal jurisdiction. The guaranties assured in the instruc- 
tions of Mr. McKinley included all those of the Federal Constitution 
except the right to bear arms and to trial by jury. 

The right to bear arms is one that can not safely j^et be extended 
to the people of the Philippines, because there are among those 
people men given to violence, who with the use of arms would at 
once resort to ladronism as a means of livelihood. The tempta- 
tion would be too great and ought not to be encouraged. Nor are 
the people fit for the introduction of a jury system. Not yet has 
any considerable part of the community become sufficiently imbued 
with the sense of responsibility for the government and with its 
identification with the government. This responsibility and identi- 
fication are necessary before jurors can sit impartially between 
society and the prisoner at the bar. Without it they are certain al- 
ways, to release the prisoner and to sj^mpathize with him in the 
prosecution against him. The fair treatment of the prisoner is suffi- 
ciently secured in a country never having had a juiy trial by the 
absolute right of appeal from the decision of a single judge to the 
decision of seven judges, with a writ of error thence to the Supreme 
Court of the United States. It may be that in the future it will 
seem wise gradually to provide for a jury in various classes of cases, 
but at present it would be premature. 



SPECIAL KEPORTS ON THE PHILIPPINES. 39 

The civil rights conferred by Mr, McKinley's instructions were 
expressl}^ confirmed by the organic act of July 1, 1902. It has been 
the purpose of the Philippine government to make the extension of 
these rights a real thing and a benefit for the poorer Filipino, and 
progress is being made in this direction. The great obstacle to it 
arises from the ignorance of the people themselves as to what their 
rights are and their lack of Imowledge as to how those rights may 
be asserted. 

The work of impressing a knowledge of these things upon the 
people goes, however, rapidly on, and with the education in English 
of a new generation and their succession to the electorate, we can be 
certain that the spread of education as to popular rights and the 
means of maintaining them will be wider and wider, until' we can 
have a whole connnunity who know their rights and, knowing, dare 
maintain them. 

Charges have been made that the existing Philippine government 
has not properly preserved these guaranties of civil rights. It is true 
that the commission has, in effect, suspended these guaranties in a 
condition equivalent to one of war in some of the provinces, and has 
been sustained in so doing by the supreme court of the islands and 
of the United States. It is also true that during a condition equiv- 
alent to war the commission provided that no one should advocate 
independence, even by peaceable means, because agents of insurrec- 
tion were inciting actual violence under the guise of such peaceable 
propaganda. With the coming of peace, the statute ceased to have 
effect. To-day, however, the writ of habeas corpus runs without 
obstruction. The liberty of the press and of free speech is real. 
There is no censorship of the press and no more limitation upon its 
editors than there is in the city of Washington. The publication of 
criminal libel or seditious language calculated and intended to cause 
public riot and disturbance is punishable in Manila and the Philip- 
pines as it is in many of the. States of the Union. This freedom of 
discussion and this opportunity to criticize the government educate 
the people in a political way and enable them more intelligently to 
evercise their political rights. 

THE NATIONAL ASSEMBLY. 

In recommending to Congress the provision for a national assem- 
bly contained in the organic act of the Philippine government. Sec- 
retary Root and the commission were moved by the hope and belief 
that the promise in the act, conditioned, as its fulfillment was, on 
the existence of peace in the islands, would stimulate activity on the 
part of all Filipinos having political ambition to bring about tran- 
quility. In this respect, as already pointed out, the result has 
abundantly vindicated their judgment. They were further moved 
by the conviction that this step toward greater popular self-gov- 
ernment would strengthen the hands of the govermnent by securing 
from the people readier acquiscence in, and greater obedience to, 
measures which their repr.esentatives had joined in passing, than 
when they were the decrees of an alien government. They further 
believed that by means of the assembly much more exact and prac- 
tical knowledge of the needs of the country would be brought to the 



40 SPECIAL REPORTS ON THE PHILIPPINES. 

law-making power than in any other way. Finally, they thought 
that the inauguration of such an assembly would be a most impor- 
tant step in the main plan or policy of educating Filipinos in the 
science and practice of popular representative government. They 
were aware of the possible danger that this was a step too far in ad- 
vance. They did not deny that on the part of a number elected there 
would be a strong inclination to obstruct the smooth working of exist- 
ing government on lines of political and material progress. They 
anticipated the probability that in the first assembly elected the ma- 
jority would be in favor of immediate independence ; but in spite of 
all this they were clear in their forecast that the responsibilities of 
power would have both a sobering and educational effect that would 
lead ultimately to conservatism of action and to strengthen the 
existing government. 

Let us now consider what has happened in the electoral campaign 
for the assembly' and in its early life as a legislative body. 

The powerful influence for good and for peace exercised by the 
Federal Party in the period just after Mr. McKinley's second election 
I have dwelt upon at another place. The main purpose and prin- 
ciple of the party was peace under the sovereignty of the United 
States. In drafting a platform its leaders had formulated a plank 
favoring the organization of the islands into a Territory of the 
United States, with a view to its possibly becoming a State. From 
this plank it took its name. In the first two or three years after its 
successful effort to bring on peace many prominent Filipinos having 
political ambition became members, and in the gubernatorial elec- 
tions the great majority of governors elected were Federals. And 
so substantially all who filled prominent offices in the government by 
appointment, including the judges, were of that party. Then dissen- 
sion arose among prominent leaders and some withdrew from the 
party. The natural opposition to a government party led to the 
organization of other parties, especially among those known as In- 
transigentes. The Federal Party had founded an organ, the Demo- 
cracia, early in its existence. The opponents of the government, look- 
ing to immediate independence, founded a paper called the Eenaci- 
miento. The latter was edited with especial ability and with a parti- 
san spirit against the American Government. 

For two years before the election of the assembly the Filipinos 
who sympathized with the Renacimiento were perfecting their or- 
ganization to secure a majority in the assembly. Many groups were 
formed, but they all were Imown as the Partido Nacionalista. There 
was some difference as to whether to this title should be added the 
word " inmediatista," but the great majority favored it. The party is 
generally known as the Nacionalista Party. During much of these 
same two years the Federal Party was dormant. The proposition for 
statehood did not awaken enthusiasm anywhere. Many of the leaders 
were in office, and felt no necessity for vigorous action. The quarrel 
between some of the directors had given the party paralysis. The 
party was not organized for political controversy with another party 
at the polls. It was merely an organization to give effective resultant 
force to the overwhelming feeling in favor of peace under United 
States sovereignty, and it was not adapted to a political fight on 
issues that were not in existence when it was at the height of its power 



SPECIAL REPORTS ON THE PHILIPPINES. 41 

for usefulness. (3n the other hand, in the Federal Party were many 
of the ablest and most conservative of the Filipinos, and its seemed 
wise that this nucleus should be used to form a party that represented 
conservatism on the issue as to independence, which the opponents of 
the government determined to force into the campaign for members 
of the assembly. It was an issue hardly germane to the subject 
matter within the jurisdiction of the assembly, but it had to be met. 
The issue whether the islands should have immediate independence 
turned on the question whether the Filipino people are now fit for 
complete self-government. Upon this question it was entirely natu- 
ral that the burden should fall upon those who asserted the nega- 
tive, and it is not strange that the electors, or a majority of them, 
should believe themselves and by their votes decide themselves to be 
competent. 

, Some six months before the elections there sprung from the ashes 
of the Federal Party a part}^ which, rejecting the statehood idea, de- 
clared itself in favor of making the Philippines an independent 
nation by gradual and progressive acquisition of governmental con- 
trol until the people should become fitted by education and practice 
under American sovereignty to enjoy and maintain their complete 
independence. It was called the Partido Nacionalista Progresista. 
It is generally known as the Progresista Party. The Progresista 
leaders were late in the field and were somewhat at a disadvantage 
on this account; but after they entered the fight they were ener- 
getic and vigorous. They did not mince words. They took the 
position fully and flatly that the people of the Philippines were not 
fitted for immediate independence and complete self-government and 
needed much education and experience before they should become 
so. It was natural to suppose that the cry of complete fitness for 
self-government was the popular one and that it would attract 
votes. This impression showed itself in a somewhat amusing way. 
The first independence party, as I have said, called itself the Partido 
Nacionalista Inmediatista. The title and organization were not rad- 
ical enough for a group that broke away and called itself Partido 
Nacionalista Urgentissima, which was supposed to indicate a party 
whose yearning for independence was greater than that of those who 
wished it immediately. This was followed by the organization of a 
new group who showed that they were not to be outdone in the 
fervor and anxiety with which they sought independence and votes 
for their candidates by calling their party Partido Nacionalista 
Explosivista. 

The campaign in the last two or three months was carried on with 
great vigor. The Nacionalistas had the advantage of being under- 
stood to be against the government. This, with a people like the 
Filipino people, who had been taught to regard the government as an 
entity separate from the people, taxing them and prosecuting them, 
was in itself a strong reason for popular sympathy and support. 
The Progresistas were denounced as a party of officeholders. The 
government was denounced as extravagant and burdensome to the 
people. In many districts the Nacionalista candidates promised that 
if they were returned immediate independence would follow. There 
were quite a number of candidates in country and remote districts 
where the controversy was not heated who did not declare them- 



42 SPECIAL REPORTS ON THE PHILIPPINES. 

selves on the main question, and maintained an independence of any 
party. They were known as Independientes. Then, there were other 
Independientes who declared themselves independent of party, but in 
favor of immediate independence. 

The elections were held on July 30. Members were elected from 
80 districts into which the Christian Filipino Provinces were divided. 
The result of the canvass was the election of 16 Progresistas, 1 Ca- 
tolico, 20 Independientes, 31 Nacionalistas, 7 Inmediatistas, 4 Inde- 
pendistas, and 1 Nacionalista Independiente, in all 80 members. 

The total vote registered and cast did not exceed 104,000, although 
in previous gubernatorial elections the total vote had reached nearly 
150,000. The high vote at the latter elections may be partly explained 
by the fact that at the same elections town officers were elected, and 
the personal interest of many candidates drew out a larger number 
of electors. But the falling off was also in part due, doubtless, to the 
timidity of conservative voters, who, because of the heat of the 
campaign, preferred to avoid taking sides. This is not a permanent 
condition, however, and I doubt not that the meeting of the assembly 
and the evident importance of its functions when actually performed 
will develop a much greater popular interest in it, and the total vote 
will be largely increased at the next election. 

I opened the assembly in your name. The roll of the members re- 
turned on the face of the record was called. An appropriate oath 
was administered to all the members and the assembly organized by 
selecting Seiior Sergio Osmeiia as its speaker or presiding officer. 
Seiior Osmena has been one of the most efficient fiscals, or prosecuting 
attorneys, in the islands, having conducted the government prosecu- 
tions in the largest Province of the islands, the Province and Island 
of Cebu. He was subsequently elected governor, and by his own ac- 
tivity in going into every part of the island he succeeded in enlisting 
the assistance of all the people in suppressing ladronism, which had 
been rife in tine mountains of Cebu for 30 or 40 years, so that to-day 
there is absolute peace and tranquillity throughout the island. He is 
a young man not 30, but of great ability, shrewdness, high ideals, 
and yet very practical in his methods of dealing with men and 
things. The assembly could have done nothing which indicated its 
good sense so strongly as the selection of Seiior Osmena as its presid- 
ing officer. 

Many successful candidates for the assembly seem to have embraced 
the cause of the Inmediatistas without having thought out deliber- 
ately an}^ plan by which a policy of immediate independence could be 
carried out. They joined the party and united in its cry because it 
was a popular one and because they thought that this was an easy 
method of being elected, or rather because they thought that without 
this, election would be difficult. When the assembly met it was quite 
apparent that the great majority were much more anxious to vindi- 
cate their election as a dignified, common-sense, patriotic branch of 
the legislature by a conservative course than to maintain consistency 
between their acts as legislators and their anteelection declarations. 
There are, of course, some members who are likely at times to make 
speeches containing violent language, but on the whole there seemed 
to be during my stay in the islands, of two or three weeks after the 
organization of the assembly, a very earnest wish that the assembly 



SPECIAL REPORTS ON THE PHILIPPINES. 43 

should show fhe conservatism which many of us believe exists in- the 
Philippine people, rather than it should orive a weapon to the enemies 
of the people and popular government by extravagance and useless 
violence of speech. 

Since I left the islands the assembly has voted for two resident 
commissioners to re]:>resent the islands at Washiugton as provided in 
the organic act of the Philippine government. These commissioners 
are elected by the assembly and the commission sitting in separate 
session. The two candidates tendered by the assembly to the com- 
mission and acce]:)ted by the latter were Mr. Benito Legarda, at pres- 
ent one of the Filipino Commissioners, and Mr. Pablo Ocampo, of 
Manila. Mr. Legarda is one of the founders of the Federal Party 
and a Progresista. He has been many times in the United States and 
speaks English. He is one of the most prominent and successful 
business men in the islands and a public-spirited citizen of high 
character. Mr. Ocampo was an active sympathizer with the insurrec- 
tion and acted as its treasurei'. He was deported to the island of 
Guam by the military authorities in the days of the military govern- 
ment. He is a prominent and able member of the bar of the islands 
and a man of high character. He took part in the organization of 
the Nacionalista Party, Avhich he wished to have called Unionista. 
He is understood to have objected to the world " inmediatista " and 
to have withdrawn from the party on that account. 

As a shibboleth — as a party cry — immediate independence has 
much force, because it excites the natural pride of the people, but few 
of their number have ever worked out its consequences, and when 
they have done so they have been willing to postpone that question 
until some of the immediate needs of the people have been met. I 
may be wrong, but my judgment is that the transfer of real power by 
giving to the people part of the legislative control of the Christian 
provinces sobers their leaders with the sense of responsibility and 
teaches them some of the practical difficulties of government. They 
wish to vindicate their view in respect to their fitness to govern them- 
selves completely by exercising the powei" of the Government which 
has been accorded to them in a way to make the people of the United 
States and of the world believe that when greater power is extended, 
they may be trusted to exercise that with equal discretion and con- 
servative common sense. They are now a real part of the govern- 
ment of the islands. Nothing can be done affirmatively without the 
consent of the assembly. They have been through one election and 
have made election promises. Many of those promises, such as the 
promises of immediate independence, were of course entirely beyond 
the authority of the promisers. When they go back to their con- 
stituents at the next election they will find facing them not only their 
anteelection promises, but also responsibility for legislation and fail- 
ure to legislate which will introduce ncAv issues of a practical char- 
acter, and will necessitate explanation and a caution of statement 
that was entirely absent in the first campaign. All this can not but 
have a wholesome effect upon the i)olitics of the Filipinos and the 
Philippines. I do not for a moment guarant-ee that there will not 
at times be radical action by the assembly, which can not meet the 
approval of those W'ho understand the legislative needs of the islands, 
but all I wish to say is that the organization and beginning of the 



44 SPECIAL REPORTS ON THE PHILIPPINES. 

life of the assembly li<ave disappointed its woidd-be critics and have 
given great encouragement to those who were responsible for its ex- 
tension of political power. 

The Inmediatistas, having a majority in the assembly, are prone 
to divide into groups. The Independientes are organizing as a party, 
drawing tighter party lines, and at times act with the Progresistas. 
who, with their 17 votes, are enjoying the advantage of the minority 
party in maintaining a solidarity and party discipline that it is im- 
possible for the leaders of the majority and the controlling party to 
attain. It would not be surprising if at the next election there 
should be a readjustment of party lines and division on other issues 
than those which controlled at the first election. 

While I was in the islands provincial elections were held at which 
were elected governors and third members of the provincial boards. 
The electionswere Held on party lines. The total vote exceeded that 
at the assembly by more than 50 per cent. Of the governors elected. 
15 yvere Nacionalista and 15 were Progresista. Of the third mem- 
bers, 15 were Nacionalista, 13 were Progresista, and 2 were of 
unknown party affiliation. From this it would seem that the Nacion- 
alista victory in the assembly election should not be taken as an 
assurance that a permanent majority of the electors Avill continue to 
favor immediate independence. 

The assembly has shown a most earnest desire, and its leaders 
have expressed with the utmost emphasis their intention, to labor for 
the material prosperity of the Philippines and to encourage the 
coming of capital and the development of the various plans for the 
improvement of the agriculture and business of the islands, which 
have commended themselves to those in the past responsible for the 
government there. In other words, thus far the assembly has not 
manifested in any way that obstructive character which those who 
have prophesied its failure expected to see, and who in this respect, 
paradoxical as it may appear, are equally disappointed with those 
anti-imperialists who have hopefully looked to the assembly as a 
means of embarrassing the present government. 

The organization of the assembly is one of the great steps in the 
education of the Filipino people for complete self-government. One 
of the assumptions which must be guarded against, but which we 
always encounter, is that the conservative and successful use by tlie 
people of an instrumentality like that of the national assembly is 
convincing proof of the people to enjoy greater power and reason 
for an instantaneous granting of that power. This is at variance 
with the theory upon which the power is granted. That theory is 
that the use of such an instrument is valuable chiefly as a means of 
educating those who use it to the knowledge of how it ought to be 
used and to conservatism in its use. The fact that on receiving it 
the people use it conservatively is by no means sufficient proof that 
if it were not subject to ultimate control, guidance, and restraint 
by the agents of the United States it might not be misused. It is 
rnost encouraging to find it conservatively used and vindicates those 
who urged its adoption, but it is far from demonstrating that this 
conservative use, subject to the limitations upon its power which now 
exist and Avhich have a necessary tendency to make its use conserva- 
tive, would be preserved under conditions in which those limitations 



SPECIAL REPORTS ON THE PHILIPPINES. 45 

were entirely removed. The moderate use of such an assembly for a 
reasonable time may properly form a ground for the greater exten- 
sion of power and the removal of some of the limitations. Progress 
in such a matter to be safe must be gradual. 

I can not refrain from saying at this point that the attitude of the 
national assembly has been nnich influenced by the confidence tliat 
the members and tlio Filipino people have in the sense of justice and 
impartiality of Gov. (xen. Smith and the deep sympathy which they 
know he feels in their Avelfare ami in their hopes of continued prog- 
ress. He knows the Filipino people better than any other American, 
and he spares no effort to reconcile their real needs and their earnest 
ilesires. 

I have i'e\iewod the liistory of the governmental organization in 
order to show the consistency of the American (irovernment in adher- 
ing to the policy laid down by President McKinley, of gradually ex- 
tending self-government to the Filii)inos as they shall show them- 
selves fit. We first, therefore, have the autonomy of the munici- 
pality, restrained by the disciplinary action of the Governor General, 
the restraint upon the expenditure of its funds by the provincial 
treasurers, and the audit of its funds by the central authority; sec- 
ond, the partial autonomy of the provincial governments in the elec- 
tion of a governor, the more complete autonomy by the constitution 
of the provincial board of two elective members out of three, the 
restraint upon the board b}^ the presence of a member of the provin- 
cial board appointed by the governor, the visitatorial powers of the 
■ Governor General for disciplinary purposes in respect of the provin- 
cial officers, the resti'aining influence and assistance of the central 
constabulary force, the modification of complete American central 
control by the introduction of three appointed Filipinos into the 
connnission, followed after five years by the inauguration of a com- 
pletely popular elective assembly to exercise equal legislative power 
with the commission. This progressive policy has justified itself in 
many ways, and especially in the restoration of order, to which I 
have already referred. 

SANITATION. 

There is alw^aj^s present in every picture of Philippine progress 
lis painted by those Avho have not carefully investigated the facts a 
somber background of a baneful climate, making it impossible for 
the American or European to live in health and strength in the 
islands for any length of time. It is true that the islands are in 
the Tropics and that the variations in temperature are onlj^ about 
a thii'd as much in extent as in the Temperate Zone, but for a tropi- 
cal climate that of the Philippines is exceptionally comfortable and 
healthful. The monsoons blow six months from southwest across 
the islands and six months from the northeast, so that they are con- 
stantly windswept. This makes a radical difference between the 
climate of the islands and that of the lowlands of India, for instance. 
The last two decades, especially the latter, have taught us much in 
respect to tropical diseases, their causes, their proper treatment, and 
the best method of avoiding them. This was one of the most valu- 
able results of the Spanish War. 



46 SPECIAL, REPORTS ON THE PHILIPPINES. 

In his address as president of the Philippine Medical Association 
in March, 1905, Dr. John R. McDill, who came first to the islands as 
a leading Army surgeon and who left the Army to carr}^ on a most 
successful practice in Manila, said: 

We have come to esteem to tlie utmost the climate which so effectually 
guards many of you against the too strenuous life and which is almost ideal 
eight months in the year, even in Manila. Our professional experience has 
proven that, excepting some intestinal disorders which we are rapidly prevent- 
ing and curing, and a limited amount of epidemic infectious diseases, there 
is nothing unusual about the kind or am«unt of disease encountered here or its 
successful treatment when hospital care is available. The surgeon's work has 
fully demonstrated that ideal wound healing and convalescence after operation 
is as much the rule here as anywhere in the world. We physicians also know- 
that, and appreciate that the dread diseases of childhood so prevalent at home 
are rare here, and that of all the ills, particularly among women, from real bodily 
ailments to a poor complexion, for which the climate is usually blamed, the 
great majority are hereditary or acquired, were brought here by the patient 
and often aggravated by careless and unhygienic living. For old people and 
children the climate is an earthly elysium. * * * with the improved and 
constantly improving conditions of living, we believe that almost all will agree 
that by observing the normal and moral life healthy Americans can live about 
as long here and enjoy as good health and do as much good and hard work 
more than three-fourths of the year as we could in the homeland. 

The death rate among- American soldiers in the Philippines for the 
last year was 8.5 per thousand, and the previous year 8.65. Gen. 
Wood reports that the size of the sick report can not be properly 
charged to the climate, that, taken as a whole, the. reports for the 
J ears indicate a decided improvement in health conditions, and that 
the men leaving the islands after a regular tour of more than two 
years present a far better appearance than those of the incon)ing. 

The death rate among American civilians in Manila for the fiscal 
year ending June 30, 1907, was 5.59 per thousand, a reduction from 
the previous year. The death rate among Filipinos this year in 
Manila was 36.9 per thousand and among Spaniards 15.84, both re- 
ductions from the previous year. 

During the decade of our stay in the islands, the conditions of life 
for Americans have steadily bettered. We have become acquainted 
with hj^gienic methods of living, and the death rate of Americans of 
the same social conditions in the Phili]3pines is certainly not greater 
than in the cities of the Southern States, and is, as we have seen, very 
much less than that among Filipinos. 

If the United States is to continue its governmental relations with 
the Philippines for more than a generation, and its business and 
social relations indefinitely, the fact that Americans can live he-alth- 
ful lives in the Philippines is important of itself; but I haA^e cited , 
these statistics and this expert opinion to show more than this — I 
believe that it has an important bearing upon another kind of 
progress possible among the Filipino people, and that it opens 
another important field of education for the American Government 
to cultivate in the islands. 

No one can be in the Philippines long without realizing that as a 
race the Filipinos are small of stature, slight of frame and flesh, and 
with small powers of resistance to epidemic diseases. It has been 
supposed that because of their nativity the Filipinos were not sub- 
ject to the malarial, intestinal, and dysenteric troubles that afflict 
Americans and Europeans, and that measures taken to avoid or cure 



SPECIAL REPORTS ON THE PHILIPPINES. 47 

such troubles in tlie case of the t'oreig-ner Avere unnecessary and super- 
flnons with the Filipinos. Kecent investigations of a systematic kind, 
carried on by keeping comparative statistics of all the official autop- 
sies made in the islands, seem to show that the assumption that the 
Filipinos are immune from the forms of disease I have mentioned is 
Avithout foundation. The autopsies of 100 cases showed in a great 
majority the germs of malaria, of amebic dystentery, and that mi- 
croI)e of the so-called " lazy " disease of Porto Rico known as the 
"hookworm." It is true that the diseases were not active or acute, 
but their presence in the system, of course, weakened the constitution 
of the subject and could easily explain his anemic condition, his 
smallness of stature, and small powers of resistance. Malaria, of 
course, is produced or at least transmitted by the mosquito, while 
amebic dysentery and the " lazy " disease are water-borne and pro- 
ceed directly from the miserable sources of water supply in most 
Filipino towns. Proper precautions can avoid all these, or at least 
can greatly reduce the number of victims. 

In Manila, 60 per cent of all infants born clie during the first year 
of their lives, and there is no reason to believe that infant mortality 
in other parts of the islands is less. This frightful percentage is 
brought about by ignorance and neglect of the mothers in feeding 
their babies. There are very few if any milch cows in the islands, and 
the little ones are fed with all sorts of impossible things. They die 
generally of a lack of nourishment. There is no reason why, if tWe 
mothers were correctly taught and proper infant food were brought^ 
Avithin the reach of the poor, this awful rate of infant mortality 
might not be reduced. Not only is there an actual loss of life which 
might be avoided, but the babies which live through such treatment 
and nourishment are not apt to make strong men and women, but are 
likely to become victims of aneemia and other diseases mentioned as 
shown in the autopsies I have referred to. 

I do not think it is unjust to the Spanish regime in the Philippines 
to say that very little if any attention was paid to sanitation accord- 
ing to modern methods. In the city of Manila and in the other large 
towns of the islands the American military medical authorities, who 
were the first to assume responsibility for the health of the islands, 
found the same utter disregard of the proper rules for the dis- 
position of house sewage that was found in Habana. Thousands, yes, 
tens of thousands, of Filipinos were carried off year after year by a 
peculiarly virulent type of smallpox. 

In Manila, in Cebu, and in Nueva Caceres, respectively, were leper 
hospitals, but in each the management was inefficient and the care of 
the inmates poor. More than this, no supervision was exercised to 
isolate lepers not in hospitals. Sometimes the poor creatures were 
driven out of villages by popular riots and herded together with no 
proper food and. no shelter. The contact of lepers with the people 
of course only increased the number of cases of the dread disease. 

In 1885 or 1886 the islands were visited by an epidemic of cholera 
and the prostration of the people of Manila and the Philippines, due 
to the rapid spread of the scourge, beggared description. In Manila 
the deaths were 1.000 or more a day from that cause alone for a num- 
ber of weeks. The trade proximity of Manila, Iloilo, and Cebu to 
China. India, Java, Burma, and the Straits Settlements, makes the 



48 SPECIAL, EEPORTS ON THE PHILIPPINES. 

danger of transmitting tropical and other infectious diseases very 
much greater. 

Quarantine in Spanish times was lax. The American Army medi- 
cal authorities took hold of the matter of sanitation in their usual 
vigorous way and made much progress in the matter of quarantine 
and in correcting the glaringly insanitary conditions in Manila. But 
it remained for the civil government to effect a thorough organization 
of a health department which could do permanent good. 

The introduction of sanitary methods by law among the people 
has given rise to more dissatisfaction and greater criticism of the 
government than any other one cause. The truth is that the> people 
have to be educated in the effectiveness of such methods before they 
can become reconciled to them, and the work of the health depart- 
ment since the beginning of the civil government in 1901 has been 
obstructed, first, by the inertia and indifference of the people in 
res]3ect to the matter and, second, by their active resistance to affirm- 
ative restraints upon them necessary to prevent disease. 

The fight against smallpox has been so successful that in the past 
year not a single death from it occurred in Manila, and in the 
Provinces of Cavite, Batangas, Cebu, Rizal, La Bataan, La Laguna, 
and La Union, where heretofore there have been approximately 6,000 
deaths per year, not one was reported. In the few places in other 
Provinces where smallpox appeared it made little headway. More 
than 2,000,000 vaccinations against smallpox were performed last 
year, and vaccination is being carried on so that it will reach every 
inhabitant of the islands. 

In 1902 Asiatic cholera appeared. The loss the first year by reason 
of the methods introducecl was much less than it had been 15 or 
16 years before, but great difficulty was encountered in putting into 
force the health regTilations and a futile attempt was made to estab- 
lish quarantine between localities in the islands. Since that time 
a better system of isolation and stamping out the disease in the 
locality where it appeared has been followed, and it is gTatifying 
to note that, although the dread disease appeared each year, it was 
finally brought to an end on November 27, 1906, and the authorities 
now feel that the people have been so thoroughly roused to the best 
methods of treating the disease that any local reappearance of it 
can be readily suppressed. 

In 1902 or 1903 the bubonic plague appeared in the islands. This 
has been suppressed by the isolation of all persons suffering from 
the disease and the destruction of plague-infected rats so that dur- 
ing the last year there were no cases of bubonic plague whatever. 

When the Americans first began government in the Philippines it 
was reported that leprosy was so widely extended in the islands that 
there were probably from 25,000 to 50,000 lepers to be cared for. 
After many unsuccessful efforts a leper colony has finally been estab- 
lished at Culion, a healthful and attractive island between Panay 
and Pahawan, to which all the lepers of the islands are now being 
gradually removed. The number probably does not exceed 3,000. 
The course pursued is to take each Province separately and by 
thorough investigation of the reported cases of lepers determine 
those of true leprosy and to remove them thence to the colony of 
Culion. The experiment at first was a doubtful one because of the 



SPECIAL KEPORTS ON THE PHILIPPHJTES. 49 

objection of the lepers to being taken so far away from tlieir homes, 
and some of the friends of lepers made vigorous objections to this 
course. After the removal of the first 500, however, and when they 
found how comfortable and agreeable life at Culion was, the objec- 
tions ceased. Leprosy, as a disease, usually does not directly kill its 
victims, but it so weakens the powers of their resistance that the rate 
of mortality from other causes among lepers is very high. The sys- 
tem of isolation and withdrawing lepers from the thickly populated 
communities has been at once justified by the reduction in the number 
of new cases. The number of known lepers in the archipelago on 
September 1, 1905, was 3,580; on June 30, 1907, it was 2,826, a de- 
crease of 654, due to the death of the known lepers without any 
spread of the disease as had been the case in previous years and under 
different conditions. The policy of removal of lepers is one which 
can only be carried out graclually and has been applied onlj^ to a part 
of the Provinces, but it will probably be completed in three or four 
years when all the lepers will be removed to Culion and the effect 
of this isolation will certainly be to reduce the infection of healthful 
persons with the awful disease to a minimum. 

The fruitful source of the spread of amoebic dysentery is the drink- 
ing of impure water. The water supply of Manila is drawn from 
the Mariquina River after it has passed through three or four thickly 
populated towns, and an immense amount of trouble and labor has 
been expended in trying to preserve the river from contamination by 
these towns. Military forces have been picketed along the banks and 
the most stringent regnilations have been enforced against the inhabit- 
ants. Much has been accomplished in this matter, but still the water 
is dangerous to drink unless boiled and filtered. With a view to the 
removal of this difficulty, new waterworks are in the process of build- 
ing at a cost to the city of Manila of about two millions of dollars. 
The water is to be drawn from a point, very much farther up the 
Mariquina Eiver, at a distance of about 25 miles from Manila, and is 
to be accumulated in a reservoir by damming the river at a point 
where nature apparently intended a dam to be put. Pure mountain 
water will thus be obtained, which is to be carried to the city of 
Manila simply by the power of gravity. The new improvement is 
80 p«r cent done and water will flow into the city probably by July 
of 1908. In addition to this a new sewer system has been projected 
and is under construction in the city of Manila and 18 miles of the 
deep and main trunk sewers have been laid in the city. The mileage 
of the remainder of the sewers is very much greater, but the engineer 
esthnates that about half of the work has been done. The project 
contemplates the establishment of reservoirs and the pumping of 
sewage out into the bay at such a distance as to prevent its retaining 
any noxious character. The difficulty of sewering Manila can be 
understood when it is known that the level of the ground in the city 
is only a few feet above high-water mark. With the completion of 
the water and sewer systems and the canalization of the esteros or 
canals, with which the city is threaded, a work which is projected 
and which will cost about $400,000, there is no doubt that Manila will 
become as healthful a tropical city as there is in the world. 

■ The very high death rate in the city is due to the frightful mortal- 
ity among the native infants under 1 year of age already alluded to. , 
117376—19 4 



50 SPECIAL REPOETS ON THE PHILIPPINES. 

The absence of pure milk for babes in the Philippines accounts for 
a good deal of this mortality, and a charitable organization has been 
established for the circulation at reasonable cost of milk for infants 
among both the poor and rich classes. The destruction of all the 
horned cattle by rinderpest has reduced the supply of milk and made 
it expensive. This adds greatly to the difficulty presented. The lack 
of nourishment makes the child an easy victim to any disease, and 
until Filipino mothers are taught properly to bring up their chil- 
dren we may expect this infant mortality to continue, but it is 
subject to cure, and the methods adopted by the government and the 
charitable organizations, including the churches, whose interest is 
aroused, may be depended on to bring about a reform in this matter. 

It is a fact that throughout the islands too, a great deal of the 
mortality, among both children and adults, is due to water-borne 
diseases. The supply of water in each village is generally contami- 
nated and noxious. The government has taken steps to induce every 
town to sink artesian wells for the purpose of giving its inhabitants 
pure water. Several well-boring machines have been purchased by 
the government and have been offered to the towns for use by them 
on condition of their supplying the fuel and the labor necessary. 
Wherever artesian wells have been sunk and a good supply of water 
found, the death rate in the town has been reduced 50 per cent. With 
a knowledge of the effectiveness of this remedy, it is certain that 
the government will continue to press upon the towns the necessity 
of the comparatively small ' expenditure necessary to secure proper 
water, for it appears that in most towns in the islands artesian water 
is available. 

There is no reason why the whole Filipino race may not be made 
stronger and better by the pursuit of proper sanitary methods with 
respect to the ordinary functions of life. The spread of education, 
the knowledge of cause and effect in this matter, together with the 
sympathetic assistance and regulation of the government are all that 
is needed to rid the Filipino of the obstructions to bodily growth and 
strength which injurious microbes and bacteria living in the body 
now create. The bureau of health and the bureau of science, which 
has actively aided the bureau of health in the investigations made, 
have now commended themselves to the Filipino people in such a 
way that there is every reason to hope that the foundation for better 
health in the islands has been permanently laid. 

The Government has this year established and begun a Government 
medical school, the faculty of which is made up partly of Filipinos 
and partly of Americans, and the most modern methods of instruc- 
tion are projected. A fine laboratory, already erected near the place 
where the medical school building is to be constructed, and a general 
government hospital in the immediate neighborhood will furnish a 
nucleus for the study of tropical diseases and the proper methods of 
sanitation. The graduates of this college as they grow in number 
and spread all over the islands into regions most of which have never 
known a physician at all will greatly contribute to the physical change 
and development for the better of the Filipino. 

The health department has been exceedingly expensive, and the 
arnount taken from the treasury each year has been subject to much 
criticism, but the results are so gratifying that even the most cap- 



SPECIAL REPORTS OlST THE PHILIPPHSTES. 5X 

tious seems now willing to admit that the expenditure was wise, 
prudent, and justified. A most thorough quarantine has been estab- 
lished and maintained under the auspices of the United States Pub- 
lic Health and Marine Hospital Service in the ports of entry in the 
islands. 

As is well understood now, the mosquito is the means of communi- 
cating malaria and yellow fever and other diseases. It is supposed 
that the Stegomyia mosquito, which carries the yellow fever, is found 
in the Philipj)ines, although no case of the fever has ever occurred in 
the islands. The importance of the mosquito in the Philippines is 
confined to malaria at present. Varieties of the insect carrying most 
malignant malaria are found to generate in the salt-water marshes, 
though ordinarily it has been supposed that the Anopheles mosquito 
conveying malaria generated only in fresh water. The wet season 
seems to interfere with the operations of the mosquito by throwing 
so much water into the streams as to prevent the stagnation necessary 
to their successful propagation. A singular instance of this is found 
in the old walled city of Manila. The old walled city has a sewer 
system for storm or surface-water drainage. During the wet season 
there is practically no malaria in the walled city, but during the dry 
season there is a great deal. It has been found that in the dry 
season in the absence of rainy weather the sewers contain stagnant 
pools in which the Anopheles mosquito is generated in great numbers 
and thus carries on his business of conveying malaria from one in- 
habitant of the walled city to another, whereas in the rainy season the 
sewers are flushed all the time and there is no opportunity for the mos- 
quito to propagate. Measures have now been taken to flush the sewers 
of the walled city in the dry season and rid the inhabitants of this 
pest until the new sewer system shall be put in operation, when the 
evil can be entirely eradicated. 

BENGUET, A HEALTH RESORT. 

In all the tropical countries in which civilized government has been 
established and progress made toward the betterment of conditions 
of human life, places have been found and settlements effected in 
high altitudes where the conditions approximate in atmosphere and 
climate those of the Temperate Zone. This is true in India, in Cey- 
lon, in Java, and wherever there are neighboring mountains which 
offer the opportunity. 

The Philippines are fortunate in having a territory in Luzon in 
the mountains of an altitude ranging from 4,500 to 7,000 feet, a 
rolling country filled with groves of pine trees and grass, in which 
the temperature rarely goes below 40° and never goes above 80° in 
the shade. The Province containing most of this territory is called 
" Benguet." Similar climate is found in the adjoining Provinces of 
Lepanto and Bontoc. The railway from Manila to Dagupan has 
now been extended to what is called " Camp No. 1," a distance of 22 
miles from Baguio, the chief town in Benguet, where is the govei'::- 
ment sanitarium and other places of resort and cure. At the cost of 
about two millions of dollars, the Government has constructed a fine 
road up the gorge of the Bued Eiver to a height of 5,000 feet. The 
work would probably never have been entered upon, had it been 



52 



SPECIAL REPORTS ON THE PHILIPPINES. 



supposed that it would be so costly, but now that it is done, and well 
done, the advantages accruing and soon to accrue justify the ex- 
penditure. 

The representatives of all the churches in the islands have taken 
lots and are putting up buildings, hospitals of various kinds are to be 
erected, there is a sanitarium, the commission holds part of its ses- 
sions there, and it is hoped that the assembly will see fit to do the 
same thing. A great many Filipinos recuperate by going to Japan 
or Europe, but here within easy distance of Manila will be offered an 
opportunity wdiere the same kind of revitalizing atmosphere may be 
found as in a temperate climate. The Filipinos were at first dis- 
posed to criticise the expenditure on the ground that the road was 
built solely for the few American officials who expected to live there a 
large part of their time. The lots were offered at public auction and 
a great many were purchased by Filipinos,, and now it is generally 
understood that the value of such a place in the Philippine Islands 
has impressed itself upon the Filipino public at large. The present 
necessity is the construction ,of a railroad from Camp No. 1 directly 
into Baguio and steps have been taken to bring this about. A large 
military reservation has been set aside which it is hoped may be made 
into a i3rigade post for the recuperation of our soldiers while in the 
Philippines. The railroad is likely to have the patronage ,of those 
who spend part of their time at Baguio, going and coming from 
Manila and other parts of the islands, and also with the construction 
of a good hotel in Manila and another one at Baguio there is not 
the slightest reason to doubt that a large tourist patronage will be 
invited for both places. Meantime the health-giving influence of the 
climate at Baguio can not but exercise a good effect upon the young 
Filipinos who may be sent there to be educated and upon those 
Filipinos who have been subject to tropical diseases and have the 
time and means for visiting this mountain resort. With the con- 
struction of a railroad, transportation to Baguio may be made ex- 
ceedingly reasonable and sanitariums built which will furnish for 
very moderate cost a healthful regimen and diet. Benguet is really 
a part of the system of government sanitation and may properly be 
mentioned in connection with it here. 

Comparative mortality from Jan. 1, 1901, to Sept. 30, 1907. 





1901 


1902 


1903 


1904 


Month. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


January 

February 

March 

April 


753 

689 
885 
886 
903 
621 
608 
702 
767 
855 
848 
858 


1 36. 25 
136.72 
142.66 
144.07 
143.47 
1 30. 89 
129.27 
1 33. 79 
1 38. 15 
141.16 
1 42. 18 
141.30 


760 

706 

770 

1,327 

1,688 

1,418 

2,223 

1,712 

1,132 

927 

1,035 

753 


136.58 
137.63 
1 37. 06 
1 66. 01 
1 81. 26 
170.54 
1 107. 02 
1 82. 42 
156.31 
144.62 
151.48 
1 36. 25 


602 
511 

539 
549 
770 
592 
620 
862 
1,228 
1,217 
974 
894 


1 28. 98 
1 27. 23 
1 25. 94 
1 27. 31 

1 37. 06 
129.45 

2 33. 21 
2 46. 17 
2 67. 97 
2 65. 19 
2 63. 91 
2 47. 89 


796 

709 

751 

748 

766 

800 

866 

1,032 

1,064 

1,018 

957 

794 


2 42. 64 
2 40. 59 
2 40. 23 
2 41.40 




2 41.03 


June 


2 44.28 


July 


2 46.39 


August 

September... 

October 

November. . . 
December 


2 55.28 
2 58. 89 
2 54.53 
2 52. 97 
2 42. 53 



1 Death rate computed on population of 244,732 (health department's census). 

2 Death rate computed on population of 219,941 (official census, 1903). 



SPECIAL EEPORTS ON THE PHILIPPINES. 53 

Comparative mortality from Jan. 1, 1901, to Sept. 30, 1907 — Continued. 



Month . 



1905 



Number 

of 
deaths. 



Annual 
death rate 
per 1,000. 



1906 



Number 

of 
deaths. 



Annual 
death rate 
per 1,000. 



1907 



Number 

of 
deaths. 



Annual 
death rate 
per 1,000. 



January... 
February . 

March 

April 

May 

June 

July 

August 

September 
October... 
November 
December. 



685 
608 
563 
530 
526 
593 
747 
841 
1,013 
850 
944 
841 



1 36. 69 
1 36. 05 
1 30. 15 
1 29. 32 
1 28. 16 
1 32. 81 
1 40. 00 
1 45. 03 
156.06 
1 45. 51 
152.24 
1 45. 03 



737 
595 
600 
555 
600 
693 
1,451 
1,182 
835 
684 
653 
597 



1 39. 47 
1 35. 28 
1 32. 13 
1 30. 27 
1 32. 13 
1 36. 72 
1 77. 72 
1 63. 31 
1 46. 22 
136.64 
1 36. 14 
131.98/- 



632 
473 
464 
416 
462 
402 
515 
653 
768 



2 33. 31 
2 27. 59 
2 24.45 
2 22. 65 
2 24.35 
2 21.89 
2 27. 14 
2 34. 41 
2 41. 82 



1 Death rate computed on population of 219,941 (official census, 1903). 

2 Death rate computed on population of 223,542 (health census, 1907). 

Mortality compared loith same period of previous years. 





First quarter. 


Second quarter. 


Third quarter. 


Fourth quarter. 




Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Nimiber 

of 
deaths. 


Annual 
death rate 
per 1,000. 


Number 

of 
deaths. 


Annual 
death rate 
per 1,000. 


1901 


2,327 
2, 236 
1,652 
2,256 
1,856 
1,932 
1,569 


42.93 
41. 25 
30.48 
41.16 
34.24 
35.64 
28.48 


2,410 
4,433 
1,911 
2,314 
1,649 
1,848 
1,280 


43.97 
80.89 
34.87 
42.22 
30. 09 
33.72 
22.98 


2,077 
5,067 
2,710 


47.49 
91.46 

48.91 


2,561 
2,715 
3,085 
2,769 
2,635 
1,934 


46.22 


1902 


29.00 


1903 


55.68 


1904 


2,962 53.46 


49.98 


1905 . . 


2,601 
3,468 
1,936 


46.94 
62.59 
34.38 


47.56 


1906 


34.90 


1907 











MATERIAL PROGRESS AND BUSINESS CONDITIONS. 

I come now to material conditions in the islands and the progress 
that has been made in respect to them. While there is reason to hope 
that the mining industry may be very much improved and developed, 
the future of the islands is almost wholly involved in the develop- 
ment of its agricultural resources, and the business of the islands 
must necessarily depend on the question of how much its inhabitants 
can get out of the ground. Jn bringing about the reforms and mak- 
ing the progress which I have been detailing, the Government has 
had to meet disadvantageous conditions in respect to agriculture 
that can hardly be exaggerated. 

The chief products of the islands are abaca, or Manila hemp, as 
it is generally called, the fiber of a fruitless variety of banana plant; 
coconuts, generally in the form of the dried coconut meat, called 
" copra ; " sugar, exported in a form having the lowest degree of po- 
larization known in commerce ; and tobacco exported in the leaf and 
also in cigars and cigarettes. There are other exports, of course, but 
these form the bulk of the merchantable products of the islands. In 
addition to these, and in excess of most of them except hemp, is the 
production of rice, which constitutes the staple food of the inhabit- 
ants. Some years before the Americans came to the islands the pro- 
duction of rice had diminished in extent because the hemp fiber grew 
so much in demand that it was found to be more profitable to raise 



54 



SPECIAL EEPORTS ON THE PHILIPPINES. 



liemp and buy rice from abroad. In the first few years of the 
American occupation, however, during the insurrection and the con- 
tinuance of the guerilla warfare, and finally the prevalence of 
ladronism, many of the rice fields lay idle, and the importation of 
rice reached the enormous figure of $12,000,000 gold, or about four- 
tenths of the total imports. With the restoration of better condi- 
tions, the production in rice has increased so that the amount of 
rice now imported is onlj^ about $3,500,000 in gold, and the differ- 
ence between the two importations doubtless measures the increased 
native production of the cereal. 

During the six years of American occupancy under the civil gov- 
ernment agriculture has been subject to the violent destruction 
which is more or less characteristic of all tropical countries. The 
typhoons have damaged the coconut trees, they have at times de- 
stroyed or very much affected the hemp production, and drought has 
injured the rice as well as the coconuts. The character of the 
tobacco leaf has deteriorated much because of a lack of care in its 
cultivation, due to the loose and careless habits of agriculture caused 
by war and ladronism, and locusts have at times cleared the fields of 
other crops without leavir g anything for the food of the cultivators. 

The great disaster to th' i islands, however, has been the rinderpest, 
which carried away in two or three years 75 or 80 per cent of all 
draft cattle in the islands. This was a blow under which the agricul- 
ture of the islands has been struggling for now four or five years. 
Attempts were made, under the generous legislation of Congress ap- 
propriating $3,000,000 to remedy the loss, if possible, to bring in 
cattle from other countries, but it was found that the cattle brought 
in, not being acclimated, died, most of them before they could be 
transferred to the farm, and then, too, they only added to the diffi- 
culty of the situation by bringing new diseases into the Philippines. 
It has been found that nothing can restore former conditions except 
the natural breeding of the survivors, and in this way it will certainly 
take five or six years more to restore matters to their normal condi- 
tion. Meantime, of course, other means are sought and encouraged 
for transportation and for plowing. The difficulty in the use of 
horses is that an Indian disease, called the " surra," which it has been 
impossible to cure, has carried off 50 per cent of the horses of the 
islands. Considering these difficulties, it seems to me wonderful that 
the exports from the islands have so far exceeded the exports in 
Spanish times and have been so well maintained that last year there 
was more exported from the islands than ever before in the history of 
the Philippines, as will be seen from the following table : 



Value of PhiUpj 


ine expoi 


ts, 1903- 


/.907, of American 


occupation. 


Fiscal year. 


Hemp. 


Sugar. 


Tobacco 
and manu- 
factures. 


Copra. 


AD other. 


Total. 


1903 


Dollars. 
21,701,575 
21,794.960 
22: 146; 241 
19, 446, 769 
21,085,081 


Dollars. 
3,955,568 
2, 668, 507 
4,977,026 
4, 863; 865 
3, 934, 460 


Dnllora. 
1,882,018 
2, 013, 287 
1,999,193 
2, 389, 890 
3, 129, 194 


Dollars. 
4,473,029 
2, 527, 019 
2, 095, 355 
4,043,115 
4, 053, 193 


Dollars. 

1,107,709 

1,246,854 

1,134,800 

1,173,495 

1,511,429 


Dollars 
33,119,899 


1904 


.30, 2.50, 627 


1905 


32,352,615 


1^06 


31,917.134 


1907 


33, 713, 357 








21,234,925 

■ 


4,079,885 


2,282,716 


3, 438, 342 


1,234,857 


32,270,726 







Note. — Total exports do not include gold and silver coin. 



SPECIAL KEPORTS ON THE PHILIPPINES. 



55 



The largest export showing in Spanish times, during years for 
which there are official statistics, was as follows: 

Value of PhiUppine exports in Spanish times, calendar year's 1885-1894. 



Calendar year. 


Hemp. 


Sugar. 


Tobacco 
and manu- 
factures. 


Copra.i 


Total, in- 
cluding all 
other arti- 
cles. 


1885 


Dollars. 
5,509,757 
4, 340, 058 
8, 161, 550 
8,099,422 
10,402,614 


Dollars. 
8, 669, 522 
7,019,978 
6,156,709 
6, 271, 030 
9, 101, 024 


Dollars. 

2,297,358 

2, 010, 093 

1,559,070 

2,449,181 

2,255,494 


Dollars. 


Dollars. 
20, 551, 434 


1886. 


5,781 

36,809 

131,347 

209,820 


20, 113, 847 
19,447,997 
19, 404, 434 


1887 


1888 


1889 


25, 671, 322 








7,302,680 


7,443,653 


2, 114, 240 


76,752 


21,037,807 




1890 


6,925,564 
10, 323, 913 
6,886,526 
7,697,164 
7, 243, 842 


7,265,030 
5, 696, 746 
7,768,595 
10,368,883 
5,476,617 


2,469,033 
2,150,306 
2,535,740 
2, 433, 304 
1,576,175 


85,764 


21, 547, 541 


1891.. . 


20, 878, 359 


1892 


743,918 

414, 652 

1, 172, 191 


19, 163, 950 


1893 


22, 183, 223 


1894 


16, 541, 842 








7,815,402 


7,315,174 


2, 232, 912 


483,305 


20, 062, 983 





I Value of cocoanuts included. 

Note. — Figures are taken from "Estadistiea general del comercio exterior de las Islas FOiplnas," issued 
by the Spanish Government. 
Total exports include gold and silver cohi. 

The chief export in value and quantity from the Philippines is 
Manila hemp, it amounting to between 60 and 65 per cent of the total 
exports. Its value has increased very rapidly of late and the result 
has been that much inferior hemp has been exported, because it could 
be produced more cheaply and in greater quantity. That which has 
made the hemp expensive and has reduced the export of it — for large 
quantities of it rot in the field still — is the lack of transportation and 
the heavy expense of the labor involved in pulling the fiber and free- 
ing it from the pulp of the stem. Several machines have been in- 
vented to do this mechanically and it seems likely now that two 
have been invented which may do the work, although they have not 
been sufficiently tested to make this certain. Should a light, portable, 
and durable machine be invented which would accomplish this, it will 
revolutionize the exportation of hemp and will probably have a ten- 
dency to reduce its cost, but greatly to increase its use and develop 
the export business of the Philippine Islands most rapidly. 

SUGAR AND TOBACCO REDUCTION OF TARIFF. 

There is a good deal of land available for sugar in the Philippines, 
but there is very little of it as good as that in Cuba, and the amount 
of capital involved in developing it is so great that I think the pos- 
sibility of the extension of the sugar production is quite remote. The 
moment it expands, the price of labor, which has already increased 50 
to 75 per cent, will have another increase. All that can really be ex- 
pected is that the sugar industry — and this is also true of the tobacco 
industry— shall be restored to their former prosperity in the earlier 
Spanish times, when the highest export of sugar reached 265,000 tons 
to all the world. 

The tobacco industry needs a careful cultivation, which, under 
present conditions, it is very difficult to secure. The carelessness with 



56 SPECIAL REPOKTS ON THE PHILIPPINES. 

which the plant is grown and the defective character of the leaves is 
such as to make the manufacturers of cigars and tobacco in Manila 
despair of using the Philippine product without the addition of the 
wrappers either from Sumatra or the United States. 

All that a friend of the Philippines can hope for is that the sugar 
and tobacco industries shall regain their former reasonably prosper- 
ous conditions. The development of the islands must be in another 
direction. The question of labor and capital both must always seri- 
ously hamper the growth of sugar production. Nor would I regard 
it as a beneficial result for the Philippine Islands to have the fields 
of those islands turned exclusively to the growth of sugar. The social 
conditions that this would bring about would not promise well for the 
political and industrial development of the people, because the cane- 
sugar industry makes a society in which there are wealthy landowners 
holding very large estates with most valuable and expensive plants 
and a large population of unskilled labor, with no small farming 
or middle class tending to build up a conservative, self-respecting 
community from bottom to top. But, while I have this view in 
respect to the matter, I am still strongly of the opinion that jus- 
tice requires that the United States should open her sugar and 
tobacco markets to the Philippines. I am very confident that such 
a course would not injure, by way of competition, either the sugar or 
the tobacco industries of the United States, but that it would merely 
substitute Philippine sugar and tobacco for a comparatively small 
part of the sugar and tobacco that now comes in after paying 
duty. Their free admission into this country would not affect the 
prices of sugar and tobacco in the United States as long as any sub- 
stantial amount of those commodities must be imported with the full 
duty paid in order to supplj^ the markets of the United States. 

So confident am I that the development, which the sugar and 
tobacco interests of the United States fear in the Philippines from 
an admission of those products free to the United States, will not 
ensue to the injury of those interests that I would not object to a lim- 
itation on the amount of sugar and tobacco in its various forms, manu- 
factured and unmanufactured, which may be admitted to the United 
States from the Philippines, the limitation being such a reasonable 
amount as would admittedly not affect the price of either commodity 
in the United States or lead to a great exploitation of the sugar and 
tobacco interests in the islands. The free admission of sugar and 
tobacco up to the amount of the proposed limitation, for the purpose 
of restoring the former prosperity in these two products to the islands, 
is very important. There are two or three Provinces, notably Occi- 
dental Negros and the island of Panay, the prosperity of which is 
bound up in good markets for sugar, and this is true also of some parts 
of Laguna, Cavite, Bulacan, and Pampanga, where sugar was raised 
in the old days with success and profit. In respect to tobacco, the 
need is not so pressing, because the territory in which marketable 
tobacco culture prevails is by no means so great. Still it does affect 
three Provinces — Cagayan, Isabela, and La Union. 

FODDER. 

The agricultural bureau of the government has been devoting a 
great deal of effort and time and money to experimenting in agri- 



SPECIAL, REPORTS ON THE PHILIPPINES. 



57 



culture. They have made many failures and have not yet succeeded 
certainly in sowing a grass which will properly cure and may be used 
for hay. It is hoped that in certain of the higher altitudes alfalfa, 
and especially clover, may be raised successfully; and, if so, the very 
high price which has now to be paid for fodder imported from 
America may be avoided. This is a question which seriously affects 
the cost of the Army in the Philippines. 

NEW PLANTS. 

Through the agricultural bureau a new industry has been de- 
veloped, that of raising maguey, a plant, the fiber of which is much 
less valuable than that of Manila hemp, but which has a good market 
whenever it is produced in quantities. The rapidity with which a 
great deal of land in the Philippines that heretofore has not been 
capable of profitable use is now taken up with the planting of maguey 
is most encouraging. The plants are being distributed by the agri- 
cultural bureau in the islands. 

THE FINANCL4L CONDITION OF THE GOVERNMENT. 

The financial condition of the government is as good to-day as 
it ever has been. The following table shows what it is, and the sur- 
plus on hand for emergencies as satisfactory : 

General account halance sheet of the government of the Philippine Islands for 
the fiscal year ended June 30, 1907. 



Debit. 



Credit. 



Surplus and deficiency account: 

Balance from previous years 

Excess revenue? over expendittires. 

Excess resources over liabilities 

Carried from suspense account 



Total. 



Insular revenues and expenditures: 

Customs revenues 

Internal revenue 

Miscellaneous revemies 

Insular expenditures 

Payments to Provinces 

Losses under section 41, act 1402 

Allowances under section 42, act 1402. 
Interbureau transactions 



Total 

Excess revenues over expenditures. 



Resources and liabilities: 

The insular treasurer's cash balance . 

Gold-standard fund 

Surplus on customs auction sales 

Invalid money orders 

Outstanding liabilities 

Loans to Provinces 

Refundable export duties 

City of Manila 

Outstanding warrants 

Friar lands funds 

Moro Province 

Depositary fund 

Silver certificate redemption fund . . . 
Refundable internal revenues 



$7, 500, 782. 29 



7, 500, 782. 29 



6, 968, 724. 86 

1,4:38,440.40 

34fi. 20 

501.38 



8,408,012.84 
2, 741, 606. 41 



11,149,619.25 



$4,439,974.02 
2, 741, 606. 41 



319,201.86 



7, 500, 782. 29 



7,990,376.57 

2,684,579.24 

389, 440. 25 



85, 223. 19 



11,149,619.25 



11,149,619.25 



25, 033, 490. 93 
1,006,753.13 



481, 137. 55 
'3,661, 25.5.'3i 



466. 84 
2,047.14 
5, 229. 40 



6, 670, 548. 06 
45,646.13 



413, 698. 89 
'i39.'i36.'45 



3,956,263.00 

10,770,3.54.00 

331,970.30 



58 



SPECIAL EEPORTS ON THE PHILIPPINES. 



General account balance sheet of the government of the Philippine Islands for 
the fiscal year ended June 30, 1,907 — Continued. 



Debit. 



Credit. 



Resources and liabilities— Continued. 

Public worlcs and permanent improvement fund 

Congressional relief fund 

Sewer and waterworks construction fimd 

Insular treasurer's liability on luiissued silver certificates. 

Unissued silver certificates 

Miscellaneous special funds ' 

Provincial governments 

Philippine money-order account 

United States money-order account 

Bonded indebtedness 

O utstanding postal drafts 

Friar land bond sinking fund 

Sewer and waterworks construction bond sinking fund. . . 

Rizal monument fund 

Baeuio town-site improvement fund 

Collecting and disbursing officers 

Total 

Excess resources over liabilities 



$2, 19S, 249. 70 
"9,'762,'5o6'6o' 



106, 216. 92 



2,384,404.42 



51, 290, 202. 15 



Total. 



51,290,202.15 



Suspense account: 

Transfer of funds. 

General account deposits 

Accountable warrants 

Carried to surplus and deficiency account . 

Total 



319,201.86 



319, 201. 86 



Treasury account: 

Balance from previous fiscal years 

Receipts at the treasury 

Withdrawals from the treasurj' 

Available for appropriation 

Approriations undrawn 

Available for refimdment or redemption . 



22,461,858.40 
112,780,022.27 



$236,934.79 
1,855,081.84 



9,702,500.00 

387,095.17 

1, 132, 743. 62 

182, 576. 54 

128,201.86 

14,500,000.00 

2, 283. 29 



39,898.34 
1,413.20 
1,525.19 



43, 789, 419. 86 
7, 500, 7S2. 29 



51, 290, 202. 15 



7, 674. 49 
195, 263. 24 
116,264.13 



319, 201. 86 



110,347,526.19 
5,218,817.54 
4, 948, 919. 94 
14, 726, 617. 00 



Total. 



135, 241, 880. 67 



135,241,880.67 



The following statement of revenues and expenditures of the 
Philippine government, exclusive of all items of a refundable char- 
acter, covers the period from the date of American occupation, 
August 18, 1898, to June 30, 1907. 

Revenues. 



Fiscal year ended June 30— 



Insular. 



Provincial. 



Citv of Manila. 



Total. 



1901 

1902 

1903 

1904 

1905 

1908 

1907... 

Total. 



$3, 558, 
6, 899, 

10, 753, 
9,371, 

10, 757, 

10, 249, 
11, 549, 

11, 468, 
11, 149, 



682. 83 
340. 53 
459. 95 
283. 11 
455. 63 
263. 98 
495. 37 
067. 16 
619. 25 



S2, 008, 480. 88 
2, 527, 252. 93 
3,295,839.47 
3,107,912.91 
4, 509, 572. 02 
4,604,528.31 



SI, 199, 593. 21 
1,541,5«75.85 
1,931,129.97 
1,441,165.82 
1, 995, 289. 85 
1,691,341.93 



$3, 558, 682. 83 
6, 899, 340. 53 
10, 753, 459. 95 
12,579,357.20 

14. 826. 284. 41 

15. 476. 233. 42 
16,098,574.10 
17, 972, 929. 03 
17,445,489.49 



85,756,667.81 



20, 053, 586. 52 



9,800,096.63 



115,610,350.96 



Expenditures. 



1899 


182,376,327.12 
4,758,793.66 
6,451,528.37 
8, 189, 404. 59 
10, 249, 533. 40 
11, 122, 562. 38 
12, 248, 857. 33 
10,146,779.12 
8, 408, 012. 84 






$2, 376, 327. 12 


1900 






4, 758, 793. 66 


1901 






6,451,528.37 


1902 


U, 633, 158. 22 
1,981,261.22 
2, 339, 826. 10 
1, 474, 320. 43 
4,335,091.32 
4,736,038.20 


$622,294.81 
1,177,611.67 
1,578,303.50 
2,574,102.78 
2, 492, 392. 23 
1,560,801.40 


10, 444, 857. 62 


1903 


13,408,406.29 


1904 


15,040,691.98 


1905... 


16,297,280.54 


1903 


16, 974, 262. 67 


1907 


14,704,852.44 






Total 


73,951,798.81 


16,499,695.49 


10,005,506.39 1 100.457.000.69 









SPECIAL REPORTS OX THE PHILIPPINES. 

The bonded indebtedness is as follows: 



59 



1 

Title of bonds. Authorized by Congress. 


Amoimt 
of issue. 


Date issued. 


Redeem- 
able. 


Due. 


Land purchase bonds 

PhiUppine public improve- 
ment bonds: 
First issue 


Act of July 1. 1902 


S7, 000, 000 

2, 500, 000 
1,000,000 

1,000,000 
2,000,000 


Jan. 11,1904 

Mar. 1, 1905 
Feb. 1, 1906 

June 1, 1905 
Jan. 2, 1907 


1914 

1915 
1916 

1915 
1917 


1934 


Act of Feb. 6, 190.5 


1935 


. .do 


1936 


Manila sewer and water 
supply bonds: 


Act of July 1, 1902, as amend- 
ed bv act of Feb. 6, 190.5. 
do. 


1935 




1937 








Total . . 


13, 500, ODD 











To meet the interest and principal on these bonds ample sinking 
funds have been provided, and the bonds are now held on the market, 
notwithstanding- the present depression, at prices well above those for 
which they were originally sold. 

friars' lands. 

The question of the disposition of the friars' lands is one which is 
occupying the close attention of the Secretary of the Interior and the 
director of lands. The price of the lands was about $7,000,000. 
Much delay has been encountered in making the necessary surveys 
and the disposition of them for the present has largely been tempo- 
rary and at small rents in order to secure an attornment of all the 
tenants and the clear definition of the limits of the leaseholds claimed 
by them. This has involved considerable time and expense in mak- 
ing the necessary surveys. The injury to the sugar industry and the 
destruction of draft cattle has affected the price and character of the 
sugar lands, and they have been allowed to grow up in cogon grass. 
This will require the investment of considerable capital to put them 
in sugar-producing condition. It is estimated that the salable lands 
would amount in value to something over $5,000,000 and that the 
lands, mostly sugar, which are not now salable, and the plants which 
were bought with the lands, represent the other $2,000,000 of the pur- 
chase price. It will take some years to work out the cost, and it is 
possible, as already prophesied, that there will be a considerable loss 
to the islands, but as the purchase was based on political grounds and 
for the purpose of bringing on tranquillity, such a loss as that which 
was thought not improbable at the time of the purchase is amply 
compensated for in the general result. 

FINAL .SETTLEMEJs^T IN RESPECT TO CHARITABLE TRUSTS AND SPANISH- 
FILIPINO BANK WITH ROMAN CATHOLIC CHURCH. 

I have spoken in previous reports of the controversies arising be- 
tween the Roman Catholic Church and the Philippine government in 
reference to the administration of certain charitable trusts. The 
same church was interested as a majority stockholder in the Spanish- 
Filipino Bank and a dispute had arisen as to the right of the bank 
to exercise the power conferred on it by its original charter of issuing 
bank notes in an amount equal to three times its capital stock. A 



60 SPECIAL, EEPORTS ON THE PHILIPPINES. 

compromise was finally arranged last June with Archbishop Harty, 
of Manila, and was consummated during my visit to the Philippines. 
I submitted to you a full report of this compromise. It received 
your approval and was then carried into effect by the Philippine 
Conmiission. 

ROADS. 

The construction of roads by the central government has gone on 
each year, but the roads have not been kept up by the numicipal 
governments charged with the duty as they ought to have been. The 
commission has now established a system by which it is hoped ulti- 
mately that the whole matter of roads may receive a systematic im- 
petus throughout the islands. Roads can not be kept up in the. 
Tropics except by what is known as the " caminero " system, in which 
a small piece of each road shall be assigned to the repair and control 
of a road repairer to be known as the " caminero." The truth is that 
good roads will develop as the people develop, because the people can 
keep up the roads if they will, and it is not until they have a large 
sense of political responsibility that they are likely to sacrifice much 
to maintain them. 

RAILROADS IN THE PHILIPPINES. 

In my last annual report I set forth in detail the concessions 
granted for the construction of railroads in Luzon, Panay, Cebu, and 
Negros, and showed that within five years we might expect that, in- 
stead of a single line of railway 120 miles in length, which was all 
that we found when we occupied the islands, we would have a system 
with a mileage of 1,000 miles. Work has gone on in full compliance 
with the terms of the concessions of the two companies. 

Only one of these companies took advantage of the provision for 
the guaranty of bonds, and they have built about 40 miles of road 
and have earned, under the terms of the concession, the guaranty of 
$973,000 of bonds, which has already been signed and delivered by the 
Philippine Government. Of course, in this financial panic these com- 
panies are likely to have difficulty in securing investors in their 
securities. The roads as constructed have been well constructed and 
are admirably adapted to resist the climatic conditions in the islands. 
There is no leason in my judgment why these roads when con- 
structed should not pay a reasonable percentage upon the investment. 
It is of the utmost difficulty to secure the coming of capital to the 
islands, and it would greatly aid us if the dividends earned by these 
roads were very large. In the Orient two-thirds of the income of 
railways comes from passenger earnings and one-third from freight. 
.Of course, the railroads are very essential to the agricultural inter- 
ests of the country and will directly affect the amount of exports of 
agricultural products — so we may count on a steady increase in the 
freight receipts from the moment of their beginning operation. As 
I say, however, the chief hope for profit in the railways is in the 
passenger traffic. In the three Visayas in which the railroads are to 
be constructed the density of population is about 160 per square mile, 
whereas the average population per square mile in the United States 
in 1900 was but 26. The island of Cebu has a population of 336 per 
square mile, or a greater density than Japan, France, Germany, ot" 



SPECIAL REPORTS ON THE PHILIPPINES. 61 

British India. It is, therefore, reasonable to suppose that the pas- 
senger earnings on these railroads will be very large. It was antici- 
pated that the labor problem would be a difficult one to solve in the 
construction of these roads. This has not proved to be true. The 
Philippine labor has shown itself capable of instruction, and by 
proper treatment of being made constant in its application. Of 
course, the prices of labor have largely increased, but the companies 
constructing the roads have found it wise to increase wages, and 
thereby secure greater efficiency. Even with increased wages the cost 
of unit of result is less in the Philippines in the construction of rail- 
ways than it is in the United States. Of course, the drain on the 
labor supply of sugar plantations and other places where agricultural 
labor is employed is great and the effect upon raising sugar and 
other products is to increase the cost. But I think the lesson from the 
construction of the railroads is that Philippine labor can be improved 
by instruction and can be made effective and reasonably economical 
by proper treatment. The coming into the islands of the Capital to 
construct railways, of course, has had a good effect in the improve- 
ment of business conditions, but it is to be noted that in the estimate 
of importations the railroad material and supplies which are brought 
in free under the statute are not included in the totals, and there- 
fore are not to be offered as an explanation for the verj^ good show- 
ing in respect to the amount of imports to the islands for the last 
fiscal year. 

GE^'ERAL BUSINESS CONDITIONS. 

Of course, tlie depression in certain business branches of agricul- 
ture, like sugar, tobacco, and rice, due to lack of markets for the first 
two, and to a lack of draft animals in the production of sugar and 
rice has had a direct effect upon the business of the islands of a de- 
pressing character. Gradually, however, business has grown better. 
In spite of adverse conditions the importations of rice have decreased 
from $12,000,000 gold to $3,500,000 gold, and, while the imports as 
a whole have increased not to their highest previous figure, they have 
been maintained within four and a half millions of their highest 
mark, and, as already said, the exports are higher than ever in the 
history of the islands, the balance of trade in their favor for the last 
fiscal year being about $5,000,000, exclusive of gold and silver and 
government and railway free entries. 

I found in the islands a disposition on the part of both American 
and Philippine business men and of the leaders of all parties in the 
Philippine Assembly to make a united effort to improve business and 
general conditions. 

BUSINESS FUTURE OF PHILIPPINES. 

I do not hesitate to prophesy that during the next 25 years a de- 
velopment will take place in the agriculture and other business of the 
Philippine Islands, which will be as remarkable in its benefits to the 
United States and the Philippine Islands as was the development of 
Alaska during the last 10 or 15 years. Hope of this is not what has 
actuated the government in pursuing the policy that it has pursued 
in the development of the islands, but this is as inevitable a result as 



62 SPECIAL REPOETS ON THE PHILIPPINES. 

if it had been directly sought, and perhaps the absence of selfishness 
in the development of the islands is a greater assurance of profitable 
return than if business exploitation by the United States hacl been the 
chief and sole motive. The growth in the production of hemp and 
other fiber products, in coconuts, in rubber and many other tropical 
crops and in peculiar manufactures of the islands may be looked for- 
ward to with certainty. 

GOJA) SIAXnAUD CURRENCY. 

One of the great benefits conferred upon the islands by the iVmeri- 
can Government has been the introduction of the gold standard. 
This has doubtless prevented the larger profits which were made in 
the old days by the purchasers of hemp and other agricultural prod- 
ucts in the islands, who sold again in European and American mar- 
kets, because under the system then prevailing they bought in silver 
and sold in gold, and by watching the markets they were able to add 
very much to the legitimate profit of the middlemen by what consti- 
tuted a system of gambling in exchanges. The same features char- 
acterized the banking in the islands. Now, however, with the gold 
standard the gambling feature in business is very largely elimi- 
nated. The coinage is satisfactory to the people, the silver certifi- 
cates circulate well and are popular, and there seems to be no 
ground for complaint of the currency. 

NEED OF XTAPITAI/ — AGRICULTURAL BANK. 

One of the crying needs of the Philippines is capital, and this 
whether it be for the development of railroads, wagon roads, manu- 
factures, or in the promotion of agriculture. The usurious interest 
which has to be paid by the farmers is so high as to leave very little 
for his profit and maintenance, and ever since we entered the islands 
the cry for an agricultural bank which would lend money for a 
reasonable interest, say, 10 per cent, has been urged upon the com- 
mission. Last year Congress authorized the government to guar- 
antee the interest at 4 per cent on a certain amount of capital in- 
vested in such a bank, but up to this time no one has embraced the 
opportunity thus offered to undertake the conduct and operation of 
a bank although negotiations are pending looking to such a result. 
It is now proposed that the government shall undertake this instead 
of a private individual. Experimentation has been attempted on the 
friars' lands by the appropriation of $100,000 for loans to the friar 
tenants to encourage them to improve agriculture, and the result 
of this experiment will be awaited with great interest. 

The reduction of the amount of silver in the silver peso for the pur- 
pose of keeping it within the 50-cent gold value, which is the legal 
standard, has gone steadily on and will result ultimately in the accu- 
mulation in the treasury of a fund of $3,000,000 gold. It is thought 
that part of this monej^ might be taken to establish an agricultural 
bank on a governmental basis. The treasurer of the islands, Mr. 
Branagan, who has had large experience in banki-ng in the islands, 
because his office has brought him closely into contact with it and be- 
cause he has had to examine all the banks, is confident that an agricul- 
tural bank of $1,000,000 or $2,000,000 might be established by the 



SPECIAL EEPORTS ON THE PHILIPPINES. 



63 



g-overnment and managed by the treasury department, together with 
the provincial treasurers in such a way as greatly to aid the cause of 
agriculture in the islands. One great dificulty in the operation of 
an agricultural bank is the uncertainty that prevails to-day in the 
islands in respect to the titles of the lands which are held. The land 
law provided a method of perfecting titles through what is called the 
land court founded on the Torrens land system, which was introduced 
by law some years ago in the islands. The expense of surveying the 
lands, due to the shortness of supply of surveyors, and the time taken 
has made the process of settling titles rather slow, but as defects have 
appeared the commission has changed them and it is hoped that this 
system of preparing for the business of an agricultural bank may 
go on apace. 

POSTAL SAVINGS BANK. 

A postal savings bank has been established and was first more 
patronized by Americans than Filipinos, but Filipinos are now tak- 
ing it up and the deposits therein amount to upward of 1P1,000,000. 
There have been practically no banking facilities throughout the 
islands, except in Manila, Iloilo, and Cebu, and this establishment of 
postal savings-bank offices in a large proportion of the post offices 
throughout the islands oifers an opportunity to the people of moder- 
ate means to put their money in a secure place and to derive a small 
revenue therefrom. The insecurity of savings b^^ Filipino farmers 
and others in the country has certainly reduced the motive for saving 
which an opportunity to deposit their money will stimulate. The 
exchange business of the islands has also been facilitated by statutory 
provisions authorizing the sale of exchange by provincial treasurers 
on the central treasury at Manila and vice versa. 

POST OFFICE AND TELOSGRAPHS. 



The post office department, considering the conditions that exist 
and the difficulties of reaching remote parts of the islands, has been 
very well managed and the offices are increasing in " encouraging 
proportion each year. 

The following table shows the increase in postal facilities from 
year to year of our occupation : 



For fiscal year ending June 30. 


Number 
post offices. 


Money-or- 
der offices. 


Number 
employees. 


Stamp 
sales. 


1900 


19 
24 
90 
209 
291 
414 
476 
505 




113 
130 
331 
570 
579 
612 
1,003 
1,091 


y228 178 36 


1901 


24 
31 
33 
63 
62 
60 
63 


233' 182 96 


1902 


238' 418 40 


1903 


248' 414 36 


1904 


224' 354 61 


1905 


222' 701 36 


1906 


425' 261 50 


1907 


607'203 44 







Under a system devised by Mr. Forbes, secretary of commerce and 
police, mail subsidies were granted to commercial lines on condition 
that good service at reasonable rates of transportation should be fur- 
nished upon safe and commodious steamers. The Government vessels 
which had previously been purchased in order to promote intercourse 



64 SPECIAL REPORTS ON THE PHILIPPINES. 

between the islands are now used on outlying routes where commercial 
lines will not take up the traffic, but are used in connection with the 
commercial lines, and in this way additional routes are being tested 
and the marine commerce between all the islands is made to increase. 
By consent of the Secretary of War and on the recommendation 
of the commanding general of the Philippines and the agreement 
of the civil government all the telegraph lines in the islands have now 
been transferred to the post-office department of the civil gov- 
ernment of the Philippines. These telegraph lines reach into the 
remotest Provinces and to all the principal islands of the large archi- 
i^elago. While there were some telegraph lines in the Spanish times, 
the system has grown to such proportions now as to be almost an 
entirely new system. It has made the government of the islands 
much more easy because it brings everj^ Province within half a day's 
communication of Manila for information and instructions from 
the central authority. It has furnished a most profitable instru- 
ment for business communications, and while it entails considerable 
burden on the civil government it is well worth for governmental 
and business purposes all that it costs. I ought to say that the post- 
office department is rapidly training Filipinos to fill all the positions 
of telegraph operators, and that this materially reduces the cost of 
operation and at the same time furnishes an admirable technical 
school for great numbers of bright Filipino young men. I submit a 
statement of the mileage of the cables and telegraph lines operated by 
the government. 

1906. 

Miles. 
Lines transferred to the insular government by the Signal Corps 
up to June 30 : 

Telegraph lines 3. 780 

Cable lines 328 

Telephone lines_. 2, 137 

Total . 6, 245 

Lines operated, by the Signal Corps on June 30 : 

Telegraph lines 1, 406 

Cable lines - 1,452 

Telephone lines 338 

Total 3, 196 



Total mileage of telegraph, cable, and telephone lines in operation 

June 30 9, 441 

Number of telegraph offices 161 

Number of telephones in operation 450 

1907. 

Lines transferred to the insular government by the Signal Corps since 

July 1, 1907 1,914.5 

Total mileage of telegraph and cable lines in operation by the insular 

government to date 6, 9.51 

MINES AND MINING. 

There has been a good deal of prospecting in the islands and gold 
and copper have been found in paying quantities in the mountains 
of northern Luzon, the Provinces of Benguet and Bontoc and Le- 



SPECIAL KEPOETS ON THE PHILIPPINES. 65 

panto, as well as in the Camarines in southeastern Luzon, and in 
Masbate, an island lying directly south of Luzon ; but great complaint 
is made, and properly made, of the limitations upon the mining law 
which prevent the location by one person of more than one claim on 
a lode or vein. Mining is such a speculative matter at any rate, and 
the capital that one puts into it is so generally lost that it would 
seem that, in a country like the Philippines where development 
ought to be had, there should be liberal inducements for the invest- 
ment of capital for such a purpose. Secretary Worcester of the inte- 
rior department has frequently recommended that this limitation of 
the law be repealed. The commission joins in this recommendation, 
and I cordially concur. 

While I do not favor large land holdings, I also concur in the 
recommendation of the secretary of the interior and the Commission 
that the prohibition upon corporations holding more than 2,500 acres 
of land be also stricken out. It certainly might well be increased to 
10,000 acres if any limitation is to be imposed at all. 

UNITED STATES COASTWISE TRADING LAAVS. 

It is proposed by some to put in force the coastwise trading laws in 
respect to the navigation between the United States and the islands. 
I think this a ^ery shortsighted policy. To-day the trade between 
the United States and the islands, export and import, is about 28 
per cent of the total. The proportion of the total export trade from 
the Philippines to the United States is growing and is certain to 
grow more rapidly in the future, especially if proper legislation is 
adopted in respect to sugar and tobacco. Now, a coastwise trading 
law will exclude altogether the use of foreign bottoms between the 
ports of the LTnited States and the ports of the Philippine Islands 
and will confine that commerce to United States vessels. There is 
very grave doubt whether there are enough United States vessels to 
carry on this trade as it is, and even if there were they could not 
carry on the trade without a very great increase in freight rates over 
what they now are. The minute that these rates are advanced, while 
the rates to other countries remain the same, the trade between the 
islands and the United States will cease to be. There will be no 
trade for the vessels of the United States to carry, no one will have 
been benefited in the United States, and the only person who will 
reap advantage is the foreign exporter to whom the Philippine busi- 
ness house will naturally turn for exchange of products. The only 
method possible by which the United States vessels can be given the 
Philippine trade is by voting a reasonable subsidy for United States 
vessels engaged in that trade. Any other prohibitive or exclusive 
provision of law will be merely cutting off the nose to spite the face 
of the interest which attemjots it. I feel certain that when the ques- 
tion of applying the coastwise trading laws to the business between 
the United States and the islands is fully investigated, even those 
representing the shipping interests that need and ought to have much 
encouragement will conclude that the coastwise trading laws ax^plied 
to the American Philippine trade would merely destroy the trade 
without benefiting the shipping interests. 

In the criticisms upon the Government's Philippine policy to be 
found in the columns of the newspapers that favor immediate sepa- 

117376—19 5 



66 SPECIAL REPOKTS ON THE PHILIPriNES. 

ration it has been frequentl.y said that the coastwise trading laws 
of the United States apply as between islands of the Philippines. 
The truth is that the restrictions upon shipping between ports in the 
Philippine Islainds are what the legislature of the islands imposes, 
and Congress has made no provision of limitation in respect to them. 
The coastwise regulations in force within the archipelago are as lib- 
eral as possible. 

CITY or MANILA. 

The city of Manila is the social, political, and business center of the 
islands. It is the only large city in the islands. Its population is 
about 250,000, while there is no other city that exceeds 40,000 in 
population. By Avhat now has been proven to be a mistake the com- 
mission purchased a building which was known and used as the 
Oriente Hotel. It was a hotel not very well conducted, but it was the 
onl}^ important hotel in the city of sufficient size and dignity to induce 
the coming of tourists. It was hoped that the purchase of this build- 
ing, which was not particularly adapted as a hotel, might lead to the 
construction and maintenance of a better hotel. Such has not been 
the result, and although there are hotels in the city of Manila its 
reputation is that of being unable to furnish to the traveling public a 
comfortable hostelry for a short stsij. This has driven away many 
travelers of our own country and other countries from a city that in 
historical interest, in beauty, and in comfort of life Avill compare 
favorablj^ with any. 

Mr. Burnham, the well-known landscape architect of Chicago, 
some years ago, without compensation, visited the Philippines and 
mapped out a plan for the improvement of the city and laid out a 
plan of construction for Baguio in Benguet as the summer capital. 
To both of these plans all improvements which have been attempted 
in the city have conformed, and if the present efficient city govern- 
ment continues there is every reason to believe that Manila will be- 
come a most attractive city. A contract has been made for the leas- 
ing of ground immediately upon the Luneta and facing the bay to a 
firm of capitalists for the construction of a hotel to cost ^500,000. 
It is doubtful, however, whether this capital can be raised at the 
present time, and if it falls through it is proposed — and I think with 
wisdom proposed — -that the government shall erect a hotel as a public 
investment for the development of the city and the islands and lease 
it to the best bidder. 

There is no city in the world better governed than Manila. The 
streets are well cleaned, are well policed, there is a most excellent fire 
department, the parks are being enlarged and improved, the street 
car system is as good as any anywhere, and with the improvements in 
the water supply the sewerage system and esteros or canals, which 
are now under foot and part of which are quite near accomplished, 
the face which the Filipinos turn toward the world in the city of 
Manila will be a most pleasing one. 

POLITICAL FUTURE OF THE ISLANDS. 

There are in the Philippines many who wish that the government 
shall declare a definite policy in respect to the islands so that they 
may know what that policy is. I do not see how any more definite 



SPECIAL KEPOETS ON THE PHILIPPINES. 67 

policy can be declared than was declared by President McKinley in 
his instructions to Secretarj^ Eoot for the guidance of the Philippine 
Commission, which Avas incorporated into law by the organic act of 
the Philippine government, adopted July 1, 1902. That policy is de- 
clared to be the extension of self-government to the Philippine 
Islands by gradual steps from time to time as the people of the 
islands shall shoAv themselves fit to receive the additional responsi- 
bility, and that policy has been consistently adhered to in the last 
seven years now succeeding the establishment of civil government. 

Having taken some part and sharing in the responsibility for that 
government, of course my Adews of the result are likelj^ to be colored 
by my interest in having the policy regarded as successful, but elim- 
inating as far as is possible the personal bias, I believe it to be true 
that the conditions in the islands to-day vindicate and justify that 
policj''. It necessarily iuA^olves in its ultimate conclusion as the steps- 
toAvard self-goA^ernment become greater and greater the ultimate inde- 
pendence of the islands, although of course if both the United States 
and the islands Avere to conclude after complete self-government Avere. 
possible that it would be mutually beneficial to continue a govern-^ 
mental relation between them like that between England and Aus- 
tralia, there would be nothing inconsistent with the present policy in- 
such a result. 

Any attempt to fix the time in Avhich complete self-government 
may be conferred upon the Filipinos in their own interest is, I think,, 
most unwise. The key of the whole policy outlined by President 
McKinley and adopted by Congress was that of the education of the 
masses of the people and the leading them out of the dense ignorance- 
in which they are noAV, Avith a view to enabling them intelligently to 
exercise the force of public opinion without Avhich a popular self- 
government is impossible. 

It seems to me reasonable to say that such a condition can not be 
reached until at least one generation shall have been subjected to 
the ijrocess of primary and industrial education, and that Avhen it is 
considered that the people are divided into groups speaking from: 
10 to 15 different dialects, and that they must acquire a common, 
medium of communication, and that one of the civilized languages^, 
it is not unreasonable to extend the necessary period beyond a genera- 
tion. By that time English Avill be the language of the islands and 
we can be reasonably certain that a great majority of' those living 
there wjll not only speak and read and write English, but will be 
affected by the knoAvledge of free institutions, and will be able to 
understand their rights as members of the community and to seek to 
enforce them against the pernicious system of caciquism and local 
bossism, which I haA^e attempted in this report to describe. 

But it is said that a great majority of the people desire immediate 
independence. I am not prepared to say that if the real wish of the 
majority of all the people, men, Avomen, and children, educated and 
uneducated, were to be obtained, there would not be a A^ery large 
majority in favor of immediate independence. It would not, how- 
ever, be an intelligent judgment based on a knowledge of what in- 
dependence means, of what its responsibilities are or of what popular 
government in its essence is. But the mere fact that a majority of all 
the people are in fa\"or of immediate independence is not a reason 



68 SPECIAL, EEPOETS ON THE PHILIPPHSTES. 

why that should be granted, if we assume at all the correctness of 
the statement, which impartial observers can not but fail to acquiesce 
in, to wit : That the Filipinos are not now fit for self-government. 

The policy of the United States is not to establish an oligarchy, 
but a popular self-government in the Philippines. The electorate to 
which it has been thought wise to extend partial self-government 
embraces only about 15 or 20 per cent of the adult male population, 
because it has been generally conceded by Filipinos and Americans 
alike that those not included within the electorate are wholly unable 
to exercise political responsibility. Now, those persons who de- 
manded and were given a hearing before the delegation of Congress- 
men and Senators that visited the islands in 1905, to urge immediate 
independence, contended that the islands are fit for self-government 
because there are from 7 to 10 per cent of intelligent people who are 
constituted by nature a ruling class, while there are 90 per cent that 
are a servile and obedient class, and that the presence of the two 
■classes together argues a well-balanced government. Such a propo- 
sition thus avowed reveals what is known otherwise to be the fact 
that many of those most emphatic and urgent in seeking indepen- 
dence in the islands have no thought of a popular government at all. 
They are in favor of a close government in which they, the leaders 
of a particular class, shall exercise control of the rest of the people. 
Their views are thus wholly at variance with the policy of the United 
States in the islands. 

The presence of the Americans in the islands is essential to the 
due development of the lower classes and the preservation of their 
rights. If the American Government can only remain in the islands 
long enough to educate the entire people, to give them a language 
which enaJoles them to come into contact with modern civilization, 
and to extend to them from time to time additional political rights 
:so that by the exercise of them they shall learn the use and respon- 
sibilities necessary to their proper exercise, independence can be 
granted with entire safetj^ to the people. I have an abiding convic- 
tion that the Filipino people are capable of being taught self-govern- 
ment in the process of their development, that in carrying out this 
policy they will be improved physically and mentally, and that, as 
they acquire more rights, their power to exercise moral restraints 
upon themselves will be strengthened and improved. Meantime they 
will be able to see, and the American public will come to see, the 
enormous material benefit to both arising from the maintenance of 
some sort of a bond between the two countries which shall preserve 
their mutually beneficial business relations. 

No one can have studied the East without having been made aware 
that in the development of China, Japan, and all Asia are to be pre- 
sented the most important political questions for the next century, 
and that in the pursuit of trade between the Occident and the Orient 
the having such an outpost as the Philippines, making the United 
States an "Asiatic power for the time, will be of immense benefit to 
its merchants and its trade. While I have always refrained from 
making this the chief reason for the retention of the Philippines, be- 
cause the real reason lies in the obligation of the Unitect States to 
make this people fit for self-government and then to turn the govern- 
ment over to them, I don't think it improper, in order to secure 



SPECIAL, KEPORTS 01^ THE PHILIPPINES. 69* 

support for the polic}'^., to state such additional reason. The severe^ 
criticism to which the policy of the Government in the Philippines 
has been subjected by English colonial statesmen and students should 
not hinder our pursuit of it in the slightest. It is, of course, opposed 
to the policy usuallj^ pursued in the English Government in dealing' 
with native races, because, in coinmon with other colonial powers, 
most of England's colonial statesmen have assumed that the safest 
course was to keep the native peoples ignorant and quiet, and that any 
education which might furnish a motive for agitation was an inter- 
ference with the true and proper course of government. Our policy 
is an experiment, it is true, and it assumes the risk of agitation and 
sedition which may arise from the overeducation of ambitious poli- 
ticians or misdirected patriots, in order that the whole body of the 
people may acquire sufficient intelligence ultimately to exercise gov- 
ernmental control themselves. 

Thus far the policy of the Philippines has worked. It has been, 
attacked on the ground that we have gone too fast; that we have 
given the natives too much power. The meeting of the assembly and 
the conservative tone of that body thus far disclosed makes for our 
view rather than that of our opponents, but had the result been en- 
tirely different with the assembly, and had there been a violent out- 
break at first in its deliberations and attempts at obstruction, I should 
not have been in the least discouraged, because ultimately I should- 
have had confidence that the assembly would learn how foolish such- 
exhibitions were and how little good they accomplished for the mem- 
bers of the assembly or the people whom they represented. The fact 
that this natural tendency was restrained is an indication of ther 
general conservatism of the Filipino people. 

Though bearing the name of inunecliate independistas, the mem- 
bers of the controlling party of the assembly are far from being in 
favor of a policy which those words strictly construed would mean.- 
Moreover, the recent election held, since the assembly was organized^, 
in which 15 progresista and 15 nationalista governors were electecl,^ 
is an indication that the nationalist feeling is by no means so over- 
whelming as was at first reported when the returns from the election, 
of the assembly were published in the press. 

The fact that Filipinos are given an opportunity now to take part 
in the forming of the governmental policies in the islands will, I. 
hope, satisfy manj?" of them that the United States is in earnest in 
attempting to educate them to self-government, will so occupy their 
ambitions and minds as to make the contention for immediate in- 
dependence more of an ideal than of a real issue, will make more 
permanent and lasting the present satisfactory conditions as to peace 
and tranquillity in the islands, and will turn their attention toward 
the development of the prosperity of the islands by improvement of 
its material conditions and the uplifting of the people by their educa- 
tion, sanitation, and general instruction in their political, social, and 
material responsibilities. 

There has been in the United States in the last year a recurring- 
disposition on the part of many of the press and many public men to 
speak of the Philippine policy as if foredoomed to failure, and the 
condition of the islands as a most deplorable one. No one who knew 
the islands in 1900, and who has visited them during the present year^ 



70 SPECIAL EEPORTS OX THE PHILIPPINES. 

and especially during the meeting of the assembl}-, can honestly and 
fairly share such views. To one actually responsible in any degree 
ior the present conditions by reason of taking part in the government 
of those islands, the changes made and the progress made under the 
circumstances are most gratifying. 

COST OF THE PRESENT GOVERNMENT OF THE ISLANDS. 

The most astounding and unfair statements have appeared in the 
press from time to time and have been uttered by men of political 
prominence who should know better in respect to the cost to the 
United States of the Philippine Islands. The question of the cost of 
the islands to the United States as affecting its future policy can not 
of course include the cost of a war into which the United States was 
forced against its will, and which, whether it ought to have been car- 
xied on or not, was carried on and was finished more than five years 
ago. The only question of cost that is relevant to the present dis- 
cussion is the cost to the United States of the maintenance of the 
present Philippine government, including in that the cost of the 
maintenance of that part of the Army of the United States which is 
in the Philippine Islands. Nor is it fair to include the entire cost of 
the Army of the United States in the Philippine Islands for the rea- 
son that even if we did not have the Philippines, we should certainly 
retain the present size of our standing Army, which hardly exceeds 
60,000 effective men, a very small army for 80,000,000 people. More- 
over, it is worthy of note that the greatest increase in the Army of 
recent years has been in that branch of the service — to Avit, the Coast 
Artillery — ^which has not been used in the Philippines for some 
jears. 

The only additional cost, therefore, that the maintenance of the 
Army can be said to entail upon the United States is the additional 
'Cost of maintaining 12,000 soldiers in the islands over what it would 
be to maintain the same number of soldiers in the United States. 
This has been figured out, and roughly stated amounts to about $250 
a man, or $3,000,000, together with the maintenance of 4,000 Philip- 
pine Scouts at a cost of $500 a man, or in all $2,000,000, which makes 
a total annual expenditure of $5,000,000. The United States at 
present contributes something, perhaps $200,000, to the expense of the 
coast survey of the islands. With this exception, there is not one cent 
expended from the Treasury of the United States for the maintainance 
of the government in the islands. The additional cost of the 12,000 
men in the islands, figured above at $250 a man, includes the cost of 
transportation and the additional cost of food supplies and other 
matters. 

There is an item of cost which perhaps may be charged to the 
Philippine Islands. I refer to the expense of fortifying the Bay of 
Manila, the port of Iloilo, and the port of Cebu, so that in holding 
the islands the United States shall not be subject to sudden and 
capricious attack by any ambitious power. This may reach a total 
of ten millions. But it is hardly fair to charge this to the Philip- 
pine policy, for almost everyone concedes the necessity of maintain- 
ing and fortifying coaling stations in the Orient whether we have 
the Philippines or not. 



SPECIAX, KEPOETS ON THE PHILIPPINES. 71 

The question is therefore whether, in order to avoid the expendi- 
ture of $5,000,000 a year, the United States should pursue the humili- 
ating policy of scuttle, should run away from an obligation which it 
has assumed to make the Philippines a permanently self-governing 
community, and should miss an opportunity at the same time of 
building up a profitable trade and securing a position in the Orient 
that can not but be of the utmost advantage in obtaining and main- 
taining its proper proportion of Asiatic and Pacific trade. 

From time to time there has been quite severe criticism of the 
present Philippine government on the ground that it is such an 
expensive government as to be burdensome to the people. The facts 
are that the taxes which fall upon the common people are much less 
than they ever were under the Spanish regime. The taxes which 
fall upon the wealthy are considerably more, because as a matter of 
fact the Spanish system of taxation was largely devised for the 
purpose of avoiding taxation of the wealth of the islands. I have 
not at hand and am not able to insert in this report the figures and 
statistics which demonstrate this fact. They are now being pre- 
pared in Manila, and I hope at some future date to submit them 
for your consideration. Not only is the comparison to be instituted 
with the conditions existing under the Spanish regime but also 
with the taxation of other dependencies. The data with respect to 
these are difficult to get, and frequently liable greatly to mislead 
when the conditions of each particular colony are not fully under- 
stood and stated. But my information is derived from Gov. Smith 
and Mr. Forbes that the cost per capita of the government of the 
Philippines will com]3are most favorably with that of colonial gov- 
ernments presenting substantially similar conditions. 

The reports from the Governor General, the heads of departments 
and of bureaus have not reached Washington. I was able before I 
left the islands to read informal drafts of some of them, and much 
of the information as to the last year's operations I have derived 
from them. I shall submit the reports immediatel}' upon their 
arrival. 

RECOMMENDATIONS, 

I therefore recommend: 

First. That legislation be adopted by Congress admitting the 
products of the Philippine Islands to the markets of the United 
States, with such reasonable limitations as may remove fear of 
interference with the tobacco and sugar interests in the United 
States ; 

Second. That the present restrictions be removed as to the acqui- 
sition of mining claims and the holding of lands by corporations in 
the Philippines; 

Tliird. That further legislation be passed authorizing the Philip- 
pine government, if it chooses, to open and conduct an agricultural 
bank with a capital not exceeding $2,000,000; and 

Fourth. That the coastwise laws of the United States be made 
permanently inapplicable to the trade between the ports of the 
islands and the ports of the United States. 

Sincerely, yours, 

Wm. H. Taft. 

The President. 



ADDRESS BY WM. H. TAFT, SECRETARY OF WAR, AT 

THE INAUGURATION OF THE PHILIPPINE 

ASSEMBLY, OCTOBER 16, 1907. 



73 



ADDRESS BY WM. H. TAFT, SECRETARY OF WAR. 



Gentlemen of the Assembly: President Roosevelt lias sent me 
to convey to you and the Filipino people liis congratulations upon 
another step in the enlargement of popular self-government in these 
islands. I have the greatest personal pleasure in being the bearer of 
this message. It is intended for each and every member of the assem- 
bly, no matter what his views upon the issues which were presented in 
the late electoral campaign. It assumes that he is loyal to the gov- 
ernment in which he now proposes, under oath of allegiance, to take 
part. It does not assume that he may not have a wish to bring 
about, either soon or in the far future, by peaceable means, a transfer 
of sovereignty; but it does assume that while the present govern- 
ment endures he will loyally do all he lawfully can to uphold its 
authority, and to make it useful to the Filipino people. 

I am aware that, in view of the issues discussed at the election of 
this assembly, I am expected to say something regarding the policy 
of the United States toward these islands. JBefore attempting any 
such task it is well to make clear the fact that I can not speak with 
the authority of one who may control that policy. 

The Philippine Islands are territory belonging to the United States, 
and by the Constitution the branch of that Government vested with 
the power and charged with the duty of making rules and regula- 
tions for their government is Conarress. The policy to be pursued 
with respect to them is, therefore, ultimately for Congress to deter- 
mine. Of course, in the act establishing a government for the Philip- 
pine Islands passed by Congress July 1, 1902, wide discretion has 
been vested in the President to shape affairs in the islands, within the 
limitations of the act, through the appointment of the governor and 
the commission, and the power of the Secretary of War to supervise 
their work and to veto proposed legislation, but not only is the 
transfer of sovereignty to an independent government of the Filipino 
people wholly within the jurisdiction of Congress, but so also is the 
extension of any popular political control in the present government 
beyond that conferred in the organic act. It is embarrassing, there- 
fore, for me, though I am charged with direct supervision of the 
islands under the President, to deal in any way with issues relating 
to their ultimate disposition. It is true that the peculiar develop- 
ment of the government of the islands under American sovereignty 
has given to the attitude of the President upon such issues rather 
more significance than in most matters of exclusively congressional 
cognizance. After the exchange of ratifications of the treaty of 
Paris in April of 1899, and until the organic act of July 1, 1902, Con- 
gress acquiesced in the government of the islands by the President 
as Commander in Chief of the Army and Navy without interference, 

75 



76 SPECIAL EEPOETS ON THE PHILIPPINES. 

and when it passed the organic act it not only confirmed in every 
respect the anomalous quasi civil government w^hich he had created^ 
but it also made his instructions to the Secretary of War part of its 
statute and followed therein his recommendation as to future exten- 
sion of popular political control. This close adherence of Congress 
to the views of the Executive in respect to the islands in the past 
gives ground for ascribing to Congress approval of the Philippine 
policy, as often declared by President McKinley and President Roose- 
velt. Still, I have no authority to speak for Congress in respect 
to the ultimate "disposition of the islands. I can only express an. 
opinion as one familiar with the circumstances likely to affect Con- 
gress in the light of its previous statutory action. 

The avowed policy of the national administration under these two 
Presidents has been and is to govern the islands, having regard to the 
interest and welfare of the Filipino people, and by the spread of gen- 
eral primary and industrial education and by practice in partial 
political control to fit the people themselves to maintain a stable and 
well-ordered government affording equality of right and opportunity 
to all citizens. The policy looks to the improvement of the people 
both industrially and in self-governing capacity. As this policy of 
extending control continues, it must logically reduce and finally end 
the sovereignty of the United States in the islands, unless it shall 
seem wise to the American and the Filipino peoples, on account of 
mutually beneficial trade relations and possible advantage to the 
islands in their foreign relations, that the bond shall not be com- 
pletely severed. 

How long this process of political preparation of the Filipino peo- 
ple is likely to be is a question which no one can certainly answer. 
When I was in the islands the last time, I ventured the opinion that it 
would take considerably longer than a generation. I have not 
changed my view upon this point; but the issue is one upon which 
opinions differ. However this may be, I believe that the policy of the 
administration, as outlined above, is as definite as the policy of any 
government in a matter of this kind can safely be made. We are 
engaged in working out a great experiment. No other nation hag at- 
tempted it, and for us to fix a certain number of years in which the 
experiment must become a success and be completely realized would 
be, in my judgment, unwise. As I premised, however, this is a ques- 
tion for settlement by the Congress of the United States. 

Our Philippine policy has been subjected to the severest con- 
demnation by critics who occupj^ points of view as widely apart as 
the two poles. There are those who say that we have gone too fast,^ 
that we have counted on the capacity of the Filipino for political 
development with a foolish confidence leading to what they regard 
as the disastrous result of this election. There are others who assert 
that we have denied the Filipino that which is every man's birth^ 
right — to govern himself — and have been guilty of tyranny and a 
violation of American principles in not turning the government over 
to the people of the islands at once. 

With your permission, I propose to consider our policy in the 
light of the events of the six years during which it has been pur- 
sued, to array the difficulties of the situation which we have had to 
meet and to mention in some detail what has been accomplished. 



SPECIAL REPORTS ON THE PHILIPPINES. 77 

The civil government was inaugurated in 1901 before the close of a 
war between the forces of the United States and the controlling 
elements of the Philippine people. It had sufficient popular support 
to overawe many of those whose disposition was friendly to the 
Americans. In various Provinces the war was continued inter- 
mittently for a year after the appointment of a civil governor in 
July, 1901. This was not an auspicious beginning for the organi- 
zation of a people into a peaceful community acknowledging alle- 
giance to an alien power. 

Secondly, there was, in the United States, a strong minority party 
that lost no opportunity to denounce the policy of the Government 
and to express sympathy with those arrayed in arms against it, and 
declared in party platform and in other ways its intention, should 
it come into power, to turn the islands .over to an independent gov- 
ernment of their people. This not only prolonged the war, but when 
peace Jfinally came, it encouraged a suUenness on the part of many 
Filipinos and a lack of interest in the progress and development of 
the existing government that were discouraging. It offered the 
hope of immediate independence at the coming of every national 
election by the defeat of the administration at the polls. This was 
not of assistance in carrying out a policj^ that depended for its work- 
ing on the political education of the people by their cordial partici- 
pation, first, in the new municipal and provincial governments, and 
finally in the election of a National Assembly. The result has been 
that 'during the educational process there has been a continuing con- 
troversy as to the political capacity of the Filipino people. It has 
naturally been easy to induce a majority of the electorate to believe 
that they are now capable of maintaining a stable government. All 
this has tended to divert the people's attention from the existing 
government, although their useful participation in that must measure 
their progress toward fitness for complete autonomy. 

The impatience of the popular majority for further power may be 
somewhat mitigated as the extent of the political control which is 
placed in the hands of the people increaises, and as they become more 
familiar with the responsibilities and the difficulties of actual power. 
The difference between the attitude of an irresponsible critic who 
has behind him the easily aroused prejudices of a people against 
an alien government and that of one who attempts to formulate 
legislation which shall accomplish a definite purpose for the good of 
his own people is a healthful lesson for the ambitious statesman to 
learn. 

Other formidable political obstacles had to be overcome. There 
still remained present in the situation in 1901 the smoldering ashes of 
the issues which had led the people to rebel against the power of 
Spain — I mean the prospective continuance of the influence of the 
regular religious orders in the parochial administration of the Roman 
Catholic Church in the islands and their ownership of most valuable 
and extensive agricultural lands in the most populous Provinces. 
The change of sovereignty to a government which could exercise 
no control over the church in its selection of its agents made the 
new regime powerless, by act or decree, to prevent the return of the 
friars to the parishes, and yet the people were disposed to hold the 
government responsible whenever this was proposed. It would have 



78 SPECIAL REPORTS ON THE PHILIPPINES. 

been fraught with great danger of political disturbance. It was 
also essential that the religious orders should cease to be agricultural 
landlords in order to eliminate the agrarian question arising between 
them and 60,000 tenants which had played so large a part in the 
previous insurrections against Spain. These results were to be 
attained without offending, or infringing upon the rights of, the 
Roman Catholic Church, the influence of which for good in the 
islands could not be denied. Other political difficulties attending th& 
transfer of a sovereignty from a government in which the interests 
of the state and the church were inextricably united to one in which 
they must be absolutely separated, I need not stop to elaborate. The 
religious and property controversies arising out of the Aglipayan 
schism, and the disturbances caused, added much to the burden of the 
government. 

The novelty of the task for the United States and her people, the 
lack of the existence of a trained body of colonial administrators and 
civil servants, the dependence for a time upon men as government 
agents who had come out in a spirit of adventure to the islands and 
some of wdiom proved not to be fitted either by character or experience 
for the discharge of responsible public duties, gave additional cause 
for discouragement. 

Another great difficulty in working out our policy in these islands 
has been the reluctance of capitalists to invest money here. Political 
privileges, if unaccompanied by. opportunities to better their condi- 
tion, are not likely to produce permanent contentment among a peo- 
ple. Hence the political importance of developing the i'esiA'iJ^ees of 
these islands for the benefit of its inhabitants. This can -only be done 
by attracting capital. Capital must have the prospeclt- of security in 
the investment and a certain return of profit before it will become 
available. The constant agitation for independence in the islands,, 
apparently supported by the minority party in the United States, and 
the well-founded fear that an independent Philippine Government 
now established would not be permanent and stable have made capi- 
talists chary of attempting to develop the natural resources of the 
islands. The capital which has come has only come reluctantly and 
on terms less favorable to the public than would have been exacted 
under other conditions. 

Another difficulty of the same character as the last in preventing 
material progress has been the failure of Congress to open the markets 
of the United States to the free admission of Philippine sugar and 
tobacco. In every other way Congress has shown its entire and gen- 
erous sympathy with the policy of the administration; and in this 
matter the popular branch of that body passed the requisite bill for 
the purpose by a large majority. Certain tobacco and sugar interests 
of the United States, however, succeeded in strangling the measure 
in the Senate committee. I have good reason for hope that in the 
next Congress we may be able to secure a compromise measure which 
shall restore the sugar and tobacco agriculture of the islands to its 
proper prosperity, and at the same time by limitations upon the 
amounts of importation allay the fears of injury on the part of the 
opponents of the measure. Still, the delay in this much-needed relief 
has greatly retarded the coming of prosperous times and has much 
discouraged supporters of our policy in America who have thought 



SPECIAL REPORTS OiT THE PHILIPPHsTES. 79 

this indicated a lack of national purpose to make the present altru- 
istic policy a success. 

But the one thing- that interfered with material progress in the 
islands, more than all other causes put together, was the rinderpest, 
which carried awa}^ from 75 to 80 per cent of the cattle that were 
absolutely indispensable in cultivating, reaping, and disposing of the 
agricultural products upon which the islands are wholly dependent. 
The extent of this terrible ciisaster can not be exaggerated and the 
islands have not yet recovered from it. Attempts to remedy the evil 
by the importation of cattle from other countries have proved futile, 
and the islands can not be made whole in this respect except by the 
natural reproduction of the small fraction of the animals that es- 
caped destruction. This is not a matter of a year, or of two years or 
of three years, but a matter of a decade. Then, too, there were in 
these years surra, locusts, drought, destructive typhoons, cholera, bu- 
bonic plague, and smallpox, ladronism, and pulajanism. The long 
period of disturbance, of guerrilla warfare and unrest, which inter- 
fered for years with the carrying on of the peaceful arts of agricul- 
ture and made it so easy for those who had been used to work in the 
fields to assume the wild and loose life of predatory bands claiming 
to be liberating armies, all made a burden for the community that it 
was almost impossible for it to bear. 

When I consider all these difficulties, which I have rehearsed at too 
great length, and then take account of the present conditions in the 
islands, it seems to me that thej^ present an occasion for profound 
satisfaction and that they fully vindicate the policy which has been 
pursued. 

How have we met the difficulties ? In the first place, we have car- 
ried out with entire fidelit}^ the promises of Presidents McKinle^^ and 
Roosevelt in respect to the gradual extension of political control in 
the government as the people should show themselves fit. In 1901 
the commission adopted the municipal code, which vested complete 
autonomy in the adult male citizens of every municipality in the 
islands, except that of Manila, which for special reasons, like those 
which have prevailed with respect to the government of the city of 
Washington, was preserved for control by the central government. 
The electorate was limited to those who could speak English or 
Spanish, or who paid a tax of ^15 a 5^ear, or who had filled munici- 
pal office under the Spanish regime, and did not exceed 20 per cent of 
the total adult males of the population. Very shortly after this a 
form of provincial government w^as established in which the legisla- 
tive and executive control of the province was largely vested in a 
provincial board consisting of a governor and treasurer and super- 
visor. Provision was made for the election of a governor and the 
appointment under ciAdl-service rules of a treasurer and supervisor. 
Subsequently it was found that the government was too expensive 
and the office of supervisor was finally abolished, and after some 
four years the board was made to consist of a governor and treasurer 
and a third member elected as the governor was, thus effecting pop- 
ular autonomy in the provincial governments. And now comes the 
assembly. 

It is said by one set of critics, to whom I have already referred, 
that the franchise is the last privilege that ought to be granted in 



80 SPECIAL KEPORTS ON THE PHILIPPINES. 

the development of a people into a self-governing community, and 
that we have put this into the hands of the Filipinos before they 
have shown themselves to be industrially and in other ways capable 
of exercising the self-restraint and conservatism of action which are 
essential to political stability. I can not agree with this view. The 
best political education is practice in the exercise of political power, 
unless the subject is so ignorant as to be wholly blind to his own 
interests. Hence the exercise, of a franchise Avhich is conferred only 
on those who have qualifications of education or property that prove 
intelligence and substance, is likely to teach the electorate asefid 
political lessons. The electorate under the Philippine law are suf- 
ficiently alive to their own interests to make the exercise of political 
power a useful training for them, while the power to be exercised is 
subject to such limitation as not to be dangerous to the community. 
More than this, the granting of the franchise was most useful in pro- 
ducing tranquillity among the people. The policy has been vindi- 
cated by the fact. 

The importance of the agency of the Army of the United States 
in suppressing insurrection I would not minimize in the least; but 
all who remember clearly the succession of events from 1901 to 1903 
will admit that the return to peace and the acquiescence of the Fili- 
pino people in American sovereignty we^e greatly influenced and 
aided by the prospect held out to the Filipinos of participation in 
the government of the islands and a gradual extension of popular 
self-control. AVithout this and the confidence of the Filipino people 
in the good purposes of the United States and the patience with 
which they endured their many burdens that fate seemed to increase, 
the progress which has been achieved would have been impossible. 

Let us consider in some detail what progress has been made. 

First. To repeat what I have said, the islands are in a state of 
tranquillity. On this very day of the opening of the national assem- 
bly there has never been a time in the history of the islands when 
peace and good order have prevailed more generally. The difficulties 
presented by the controversies arising with and concerning the Koman 
Catholic Church have either been completely settled or are in process 
of satisfactory adjustment on a basis of justice and equity. 

Second. Most noteworthy progress has been made in the spread 
of general education. One of the obstacles to the development of 
this people speaking half a dozen or more different native dialects 
was a lack of a common language, which would furnish a medium 
of sympathetic touch with modern thought and civilization. The 
dense ignorance of a very large proportion of the people emphasized, 
the necessity for a general educational system. English was the 
language of the sovereign power, English was the business language 
of the Orient, English was the language in which was thought and 
written the history of free institutions and popular government, and 
English was the language to which the common people turned with 
eagerness to learn. A system of education was built up, and to-day 
upward of half a million children are being taught to read, write, 
and recite English. It is not an exaggeration to assert that now 
more native Filipinos speak English than Spanish, although Spanish 
was the language of the ruling race in these islands for more than 
250 years. English is not so beautiful as the Spanish language, but 



SPECIAL REPOETS ON THE PHILIPPINES. 81 

it is more likely to prove of use to the Filipinos for the reasons I 
have given. The strongest basis for our confidence in the future of 
the Filipino people is the eagerness with which the opportunities 
extended for education in English have been seized by the poor and 
ignorant parents of these islands for their children. It is alike 
pathetic and encouraging. 

I am not one of these who believe that much of the public money 
should be expended here for university or advanced education. 
Perhaps one institution merely to form a type of higher education 
may be established at Manila or at some other suitable place in the 
islands, and special schools to develop needed scientific professions 
may be useful, but the great part of the public funds expended for 
education should be used in the spread of primary education and of 
industrial education — that education which shall fit young men to be 
good farmers, good mechanics, good skilled laborers, and shall teach 
them the dignity of labor and that it is no disgrace for the son of a 
good family to learn his trade and earn his livelihood by it. The 
higher education is well for those who can use it to advantage, but 
it too often fits a man to do things for which there is no demand and 
unfits him for work which there are too few to do. The enlargement 
of opportunity for higher education may well await private benefi- 
cence or be postponecl to a period when the calls upon the island 
treasury for other more important improvements have ceased. We 
have laid the foundation of a primary and industrial educational 
system here which, if the same spirit continues in the government, 
will prove to be the most lasting benefit which has been conferred 
on these islands by Americans. 

Third. We have introduced here a health department which is 
gradually teaching the people the necessity for sanitation. In the 
years to come, when the great discoveries of the world are recited, 
that which will appear to have played as large a part as any in the 
world's progress in the current hundred years will be the discovery 
of proper sa:''%ry methods for avoiding disease in the Tropics. 
The introduction of such methods, the gTadual teaching of the people 
the simple facts affecting hygiene, unpopular and difficult as the 
process of education has been, will prove to be another one of the 
great benefits given by Americans to this people. 

The efforts of the government have not been confined to preserving 
the health of the human inhabitants of these islands, but have been 
properly extended to doing what can be done in the matter of the 
health of the domestic animals, whi di is so indispensable to the mate- 
rial progress of the islands. The destruction hj rinderpest, by surra, 
and by other diseases to which cattle and horses are subject, I have 
already dwelt upon. Most earnest attention has been given by men 
of the highest scientific attainment to securing some remedy which 
will make such widespread disasters in the future impossible. Much 
time and effort and money has been spent and much has been accom- 
plished in this matter. The people are being educated in the necessity 
for care of their cattle and for inviting in public aid at once when 
the dread rinderpest shows its presence. Serums have been dis- 
covered that have been effective to immunize cattle, and while the 
disease has not disappeared, it is not too much to say that such an 

117376—19 6 



82 SPECIAL, REPORTS OX THE PHILIPPINES. 

epidemic as that which visited the islands in 1900, 1901, and 1902 is 
impossible. 

Fourth. A judicial system has been established in the islands which 
has taug-ht the Filipinos the possibility of the independence of a judi- 
ciary. This must be of enduring good to the people of the islands. 
The personnel of the judges is divided between Americans and Fili- 
pinos, both for the purpose of aiding the Americans to learn and 
administer civil law and of enabling the Filipinos to learn and admin- 
ister justice according to a system prevailing in a country where the 
judiciary is absolutely independent of the executive or legislative 
branches of the Government. Charges have been made that individ- 
ual judges and particular courts have not been free from executive 
control and have not been without prejudices arising from the race of 
the particular judge who sat in the court, but, on the whole, an impar- 
tial review of the six years' history of the administration of justice 
will show that the system has been productive of the greatest, good 
and that right has been sustained without fear or favor. It is entirely 
natural that a system which departs from the principles of that in 
which one has been educated should at times attract his severe an- 
imadversion, and as the S3'stem here administered partakes of two 
systems, it is subject to the criticism of those trained in each. 

Another agency in the administration of justice has beBn the con- 
stabulary. When I was here something more than two years ago, the 
complaints against that body w^ere numerous, emphatic, and bitter. 
I promised, on behalf of the Philippine government and the Wash- 
ington administration, that close investigation should be made into 
the complaints, and that if there was occasion for reform that reform 
would be carried out. It gratifies me on my return to the islands now 
to learn that a change has come, that the complaints against the con- 
stabulary have entirely ceased, and that it is now conceded to be 
discharging with efficiency the function which it was chiefly created 
to perform, of sympathetically aiding the provincial governors and 
municipal authorities of the islands in maintaining t;Vlpeace of each 
Province and each municipality, and that there is a,\iiorough spirit 
of cooperation between the officers and men of the constabulary and 
the local authorities. 

In respect to the administration of justice by justices of the peace, 
reforms have been effected, but I am not sure that there is not still 
great room for improvement. This is one of the things that come 
home close to the people of the country and is a subject that will 
doubtless address itself to the wise action and consideration of the 
national assembly. 

Fifth. We come to the matter of public improvements. The port 
of Manila has been made into a harbor which is now as secure as any 
in the Orient, and which, with the docking facilities that are now 
being rapidly constructed, will be as convenient and as free from 
charge and burden as any along the Asiatic coast. The improve- 
ments in Iloilo and Cebu JHarbors, the other two important ports of 
the islands, are also rapidly progressing. Road building has pro- 
ceeded in the islands, both at the instance of the central government 
and through the agency of the Provinces. The difficulties of road 
building and road maintaining in the Philippines are little under- 
stood by those not familiar with the difficulty of securing proper 



SPECIAL KEPORTS ON THE PHILIPPINES. 83 

material to resist the enormous wear and tear caused by the torrential 
downpours of the rainy season. Progress in this direction must nec- 
essarily be gradual, for the islands are a poor country, comparatively 
speaking, and roads are expensive. 

Early in the history of the islands we began the construction of a 
road from Pangasinan to the mountains of Benguet, in order to bring 
within the reach of the people of the islands that healthful region, 
where the thermometer varies from 40 to 80 degrees and in which all 
the diseases of the Tropics are much more easily subject to cure than 
in the lowlands. Had it been supposed that the road thus to be con- 
structed would involve an expense of nearly $2,000,000, the work 
would not have been begun, but, now that the road has been con- 
structed, I would not undo what has been done, even if it were pos- 
sible. As time progresses the whole Province of Benguet will be 
settled; there w^ill be made the home of many educational institu- 
tions, of manj^ sanitariums, and there will go, as transportation be- 
comes cheaper, the Filipino people to obtain a change of air and 
acquire a renewed strength that is given to tropical peoples by a visit 
to the Temperate Zone. 

When the Americans came to the islands there was one railroad 120 
miles long, and that was all. In spite of circumstances, which I have 
already detailed, making capital reluctant to come here, contracts 
have now been entered into, that are in the course of fulfillment^ 
which in five years will give to the islands a railroad mileage of 
1,000 miles. The construction of these roads Avill involve the invest- 
ment of twenty to thirty millions of dollars, and that in itself means 
an added prosperity to the country, additional demands for labor^ 
and the quickening of all the nerves of trade. When the work is 
finished, it means a great additional profit to agriculture, a very 
great enlargement of the export capacity of the islands, and a sub- 
stantial elevation of the material condition of the people. 

In the matter of municipal improvements, which directly concern 
the people, that w:hich has taken place in Manila is most prominent. 
The improvement of the streets, the introduction of a satisfactory 
street railway s^^stem 35 miles in length, the improvement of the 
general appearance of the city and its hygienic condition, the con- 
struction of new waterworks and a new sewage system, all strike one 
who knew the city in 1900. The improvements of other municipali- 
ties in the islands have not kept pace with those in Manila, and of 
course they were not so imperatively needed; but the epidemics of 
cholera and plague and smallpox which have prevailed have con- 
vinced those in authority of the necessity of bettering the water sup- 
ply of all municipalities and for improving this by the sinking of 
artesian wells and other means, so that bad water, that frightful 
source of the transmission of disease, should be reduced to a mini- 
mum. 

The Government now maintains and operates a more complete sys- 
tem of posts, telephones, and telegi'aphs than ever before in the 
history of the islands. Seventy-five per cent of the 652 municipali- 
ties now established in these islands have post offices, in 235 of 
which there are now opened for business postal savings banks. The 
telegraph or telephone now connects all of the provincial capitals 
with Manila and more than 90 offices are now open for business. 



84 SPECIAL REPORTS OX THE PHILIPPINES. 

Appropriation has been made to provide for a system of rural free 
delivery. In less than one year of operation the Postal Savings 
Bank has deposits exceeding ?600,000, and the nnmber of Filipino 
depositors now exceeds 1,000, and the proportion of their deposits 
is steadily increasing. 

Sixth. We have inaugurated a civil-service law for the selection 
of civil servants upon the merit system. On the whole it has worked 
well. It has grown with our experience and has improved with the 
disclosure of its defects. 

One of the burning questions which constantly presents itself in 
respect to the civil service of a Government like this is, how far it 
shall be American and how far Filipino. In the outset it was es- 
sential that most of the civil servants of the Government should be 
Americans. The Government was English speaking, and the prac- 
tical difficulty of having subordinates who did not speak that lan- 
guage prevented large employment of Filipinos. Then their lack of 
knoAvledge of their American governmental and business methods 
had the same tendency. The avowed policy of the Government has 
been to employ Filipinos wherever, as between them and Americans, 
the Filipinos can do equally good work. This has given rise to fre- 
quent and bitter criticism, because it has been improperly assumed 
that every time that there has been a vacancy it could be filled by a 
Filipino. There are two great advantages in the employment of 
F'ilipinos — one is that this is the Government of the Filipinos and 
they ought to be employed where they can be, and the other is that 
their employment is a matter of economy for the Government, be- 
cause they are able to live more cheaply and economically in the 
islands than Americans and so con afford to receive less salary. 
There has, therefore, been a constant reduction of American em- 
ployees and an increase of Filipinos. This has not been without its 
disadvantage because it makes competent American employees feel 
«n uncertainty of tenure, and materially affects their hopes of pro- 
motion and their interest in the Government of which they are a 
part. This disadvantage I believe can be largely obviated. 

There are many American civil servants in this government who 
have rendered most loyal, difficult, and efficient service, in season and 
out of season, through plague and epidemic, in sickness and in 
health, in full sympathy with the purposes and policy of the govern- 
ment. Without them our government would have been a complete 
failure. They will never receive adequate reward. Their interest 
in their work has prevented their return to their native land, where 
the same energy and efficiency would have earned them large return. 
They are most valuable public servants who have done a work that, 
had they done it in the English colonial service or at home, would 
have been certain to secure to them a permanent salary and entire free- 
dom from anxiety as to the future. I would be glad to see adopted 
a system of permanent tenure and retirement on pensions for the 
small and higher classes of civil employees. Their continuance in 
the government indefinitely is a public necessity. I sincerely hope 
the Philippine Assembly will exhibit its spirit of justice and public 
interest to the point of concurring in such a measure, even though 
this, at present, will be of benefit to more Americans than Filipinos. 

Seventh. In the progress which has been made I should mention 
the land system, the provision for homestead settlement, for free 



SPECIAL EEPOETS OlST THE PHILIPPINES. 85 

patents, and for perfecting of imperfect titles by land registration. 
The homestead settlements under the law were very few for several 
years, but I am delighted to learn that during 1907 they reached 
4,000 and the free patents applied for were 10,600. It is probable 
that the machinery for land registration, though necessary, is too 
expensive, and it will be for you to decide whether, in view of the 
great public benefit that good land titles will bring to the country^ 
it may not be wise to reduce the cost of registration to the landowner 
and charge the expense to the government. Capital will not be ad- 
vanced to the farmer unless his title is good, ancl the great benefit of 
an agricultural bank can never be realized until the registration of 
titles is greatly increased. 

This naturally brings me to the subject of the agricultural bank. 
After much effort Congress was induced to pass an act which author- 
izes the Philippine government to invite the organization of such ai 
bank with private capital by guaranteeing an annual income of a 
certain percentage on the capital invested for 30 years. Negotiations- 
have been opened and are pending with some American capitalists. 
in the hope of securing the establishment of such a bank. 

The condition of agriculture in the islands, while generally muclr 
improved in the last three years, is still unsatisfactory in many parts 
of the islands, due not only to the continued scarcity of cattle but 
also to the destructive effect of the typhoon of 1905 upon the hemp 
culture. This has properly led to the suspension of the land tax for 
another year and the meeting of half the deficit in provincial and 
municipal treasuries thus produced out of the central treasury. 

The production of rice has, however, materially increased. It is 
also a source of satisfaction to note that the isxports from the islands,, 
which are wholly agricultural, are larger in value by half a million 
gold dollars than ever in the history of the islands. One of the chief 
duties of this assembly is to devote its attention and practical knowl- 
edge to measures for the relief of agriculture. 

Eighth. The financial condition of the Philippine government is 
quite satisfactory, and so, too, is the state of the money and cur- 
rency of the islands. There is a bonded indebtedness for the pur- 
chase of friar lands amounting to $7,000,000, for the waterworks 
and sewage of Manila of $3,000,000, and for public works amounting 
to $3,500,000. Sinking funds have been established for all of these. 
The price paid for the friar lands was a round one, and may result^ 
after the lands are disposed of, in some net pecuniary loss to the 
government, but the political benefit of the purchase was a full justi- 
fication. The lands will be disposed of to the tenants as rapidly as 
the public interest Avill permit. The only other permanent obliga- 
tion of the government is the contingent liability on the guaranty of 
interest for 30 years on the bonds issued to construct 300 miles of 
railroad in the Visayas. We may reasonably hope that this obliga- 
tion will soon reduce itself to nothing when the roads come into suc- 
cessful operation. The governor general reports to me that the 
budget for 1908 will show an income and surplus from last year^ 
without any land tax, from which it will be possible to pay all the 
interest on the bonds and guaranties, all the insular expenses, the 
proper part of the expenses of Manila, $2,000,00.0 in permanent im- 
provements, and still have on hand for contingencies $1,000,000. I 



86 SPECIAL EEPORTS ON THE PHILIPPHSTES. 

am further advised that the condition of most of the Provinces is 
excellent in respect to income and surplus. 

It has been necessary to reduce the silver in the Philippine peso to 
keep its intrinsic value within the value of 50 cents gold, at which 
it is the dutj^ of the government to maintain it, and this change is 
being rapidly carried through without much difficulty. The benefit 
to the people, and especially the poorer and working classes, in the 
establishment of the gold standard is very great. It eliminates a 
gambling feature from the business of the islands that always 
worked for the detriment of the Philippine people. We are just 
carrying through a settlement with the Spanish-Filipino Bank which 
I hope will provide a means of safely adding to the currency of the 
country and increasing its elasticity. 

In recounting these various evidences of progress in the last six 
years I am not unmindful that the business of the islands is still 
far from prosperous. Indeed, it is noteworthy that so much progress 
has been made in the face of continued business depression due to 
the various causes I have elsewhere enumerated; but it is a long 
lane that has no turning, and I look forward to the next decade in 
the history of the islands as one which will be as prosperous as this 
one has been the reverse. Business is reviving, the investment of 
foreign capital is gradually increasing, and only one thing is needed 
to insure great material improvement and that is the continuance 

f conservatism in this government. I feel confident that the 
inauguration of this assembly, instead of ending this conservatism 
as the prophets of evil would have it, will strengthen it. 

Before discussing the assembly I wish to give attention to one 
report that has been spread to the four corners of the globe, and 
which, if credited, might have a pernicious etfect in these islands. 

1 refer to the statement that the American Government is about to 
■sell the islands to some Asiatic or European power. Those who 
•credit such a report little understand the motives which actuated 
the American people in accepting the burden of this government. 
The majority of the American people are still in favor of carrying 
out our Philippine policy as a great altruistic work. They have no 
selfish object to secure. There might be a grim and temporary* 
satisfaction to those of us who have been subjected to severe criticism 
for our alleged lack of liberality toward the Filipino people and of 
sympathy with their aspirations, in witnessing the rigid govern- 
mental control which would be exercised over the people of the 
islands under the colonial policy of any one of the powers to whom 
it is suggested that we are about to sell them; but that would not 
excuse or justify the gross violation, by such a sale, of the implied 
obligation which we have entered into with the Filipino people. 
That obligation presents only two alternatives for us — ^one is a 
permanent maintenance of a popular government of law and order 
under American control, and the other a parting with such control 
to the people of the islands themselves after they have become fitted 
to maintain a government in Avhich the right of all the inhabitants 
to life, liberty, and property shall be secure. I do not hesitate to 
pronounce the report that the Government contemplates the transfer 
of these islands to any foreign power as utterly without foundation. 
It has never entered the mind of a single person in the Government 



SPECIAL REPORTS ON THE PHILIPPIl^ES. 87 

responsible for the administration. Such a sale must be the subject 
of a treaty, and the treaty power in the Government of the United 
States is exercised by the President and the Senate, and only upon 
the initiative of the President. Hence an Executive declaration 
upon this subject is more authoritative than an Executive opinion 
as to probable congressional action. 

Coming- now to the real occasion of this celebration, the installa- 
tion of the national assembly, I wish, for purposes of clearness, to 
read the section of the organic act under which this assembly has 
been elected : 

That two years after tlie comliletii)n and pulilication of the census, in case 
sufh condition of general and com]>lete peace ^Yith recognition of the authority 
of the United States sliall have continued in the territory of said islands not 
inhabited by Moros or other non-Christian tribes and such facts shall have 
been certified to the President by the Philippine Commission, the President 
upon being satisfied thereof shall direct said commission to call, and the com- 
mission shall call, a general election for the choice of delegates to a popular 
assembly of the people of said territory in the Philippine Islands, which shall 
be known as the Philippine Assembly. After said assemljly sliall have convened 
and organized, all the legislative power heretofore conferred on the Philippine 
Commission in all that part of said islands not inhabited by Moros or other non- 
Christian tribes shall be vested in a legislature consisting of two houses — the 
Philippine Commission and the Philippine Assembly. Said assembly shall con- 
sist of not less than 50 nor more than 100 members, to be apportioned by said 
commission among the provinces as nearly as practicable according to popula- 
tion : Provided, That no province shall have less than one member : And provided 
further. That provinces entitled by population to more than one member may be 
divided into such convenient districts as the said commission may deem best. 

Public notice of such division shall be given at least 90 days prior to such 
election, and the elections shall be held under rules and regulations to be pre- 
scribed by law. The qualification of electors in such election shall be the same 
as is now provided by law in case of electors in municipal elections. The mem- 
bers of assembly shall hold office for two years from the 1st day of January 
next following their election, and their successors shall be chosen by the people 
every second year thereafter. No person shall be eligible to such election who 
is not a qualified elector of the election district in which he may be chosen, 
owing allegiance to the United States, and 25 years of age. 

The legislature shall hold annual sessions, commencing on the first Monday 
of February in each year and continuing not exceeding 90 days thereafter 
(Sundays and holidays not included) : Provided, That the first meeting of the 
legislature shall be held upon the call of the governor within 90 days after the 
first election : And provided further, That if at the termination of any session 
the appropriations necessary for the support of the government shall not have 
been made, an amount equal to the sums appropriated in the last appropriation 
bills for such purposes shall be deemed to be appropriated ; and until the legisla- 
ture shall act in such behalf the treasurer may, with the advice of the governor, 
make the payments necessary for the purposes aforesaid. 

The legislature may be called in special session at any time by the civil gover- 
nor for general legislation, or for action on such specific subjects as he may 
designate. No special session shall continue longer than 30 days, exclusive of 
Sundays. 

The assembly shall be the judge of the elections, returns, and qualifications 
of its members. A majority shall constitute a quorum to do business, but a 
smaller number may adjourn from day to day and may be authorized to compel 
the attendance of absent members. It shall choose its speaker and other offi- 
cers, and the salaries of its members and officers shall be fixed by law. It may 
determine the rule of its proceedings, punish its members for disorderly be- 
havior, and with the concurrence of two-thirds expel a member. It shall keep a 
journal of its proceedings, which shall be published, and the yeas and nays of 
the members on any question shall, on the demand of one-fifth of those present, 
be entered on the journal. 

I can well remember when that section was drafted in the private 
office of Mr. Root in his house in Washington. Only he and I were 



88 SPECIAL EEPOETS ON THE PHILIPPINES. 

present. I urged the wisdom of the concession and he yielded to my 
arguments and the section as then drafted differed but little from the 
form it has to-day. It was embodied in a bill presented to the House 
and passed by the House, was considered by the Senate, was stricken 
out in the Senate, and was only restored after a conference, the Sena- 
tors in the conference consenting to its insertion with great reluctance. 
I had urged its adoption upon both committees, and, as the then 
governor of the islands, had to assume a responsibility as guarantor 
in respect to it which I have never sought to disavow. I believe that 
it is a step and a logical step in the carrying out of the policy an- 
nounced by President McKinley and that it is not too radical in the 
interest of the people of the Philippine Islands. Its effect is to give 
to a representative body of the Filipinos a right to initiate legislation, 
to modify, amend, shape, or defeat legislation proposed by the Com- 
mission. The power to obstruct by withholding appropriations is 
taken away from the assembly, because if there is not an agreement 
as to appropriations between the commission and the assembly, then 
the appropriations of the previous year will be continued; but the 
power with this exception, absolutely to veto all legislation and 
initiate and shape proposed laws is a most substantial one. The con- 
currence of the assembly in useful legislation can not but command 
popular suji/port for its enforcement ; the discussion in the assembly 
and its attitude must be informing to the executive and to the other 
branch of the legislature, the commission, of what are the desires of 
people. The discharge of the functions of the assembly must give to 
the chosen representatives of the Philippine electorate a most valuable 
education in the responsibilities and difficulties of practical govern- 
ment. It will put them where they must investigate not only the 
theoretical wisdom of proposed measures, but also the question 
whether they can be practically enforced and whether, where expense 
is involved, they are of sufficient value to justify the imposition of a 
financial burden upon the people to carry them out. It will bring the 
members of the assembly as representatives of the people into close 
relations with the executiA^e, who will be most anxious to preserve a 
harmony essential to efficient government and progressive, useful 
measures of reform. 

Critics who do not sympathize with our Philippine policy, together 
with those who were reluctant to grant this measure of a legislative 
assembly to the Philippine people at this time, have not been slow 
to comment on the result of the election as an indication that we 
are going too fast. I differ entirely from the view of these critics as 
to the result of this election and the inferences to be drawn from it. 

The small total vote as compared with the probable number of 
the total electorate shows that a considerable majority of those enti- 
tled to vote did not exercise the privilege. This indicates either an 
indifference or a timidity that we would not find in a people more 
used to the wielding of political power; but it affords no reason for 
supposing that as the assembly proves its usefulness and important 
power the ratio of votes to the total electorate will not rapidly 
increase. 

The election was held without disturbance. In many districts 
there were bitter controversies, but the complaints of fraud, violence^ 
or bribery are insignificant. Although the Government was sup- 



SPECIAL KEPORTS ON THE PHILIPPINES. 89 

posed to favor one party, and was subject to much, criticism in the 
campaign, no one has been heard to say that the power of the Execu- 
tive was exerted in any way improperly to influence the election. 
This furnishes a good object lesson. 

A popular majority of those who exercise the franchise have voted 
for representatives announcing a desire for the immediate separation 
of the islands from the United States. This majority is a small one 
when the returns are carefully considered and is much less than the 
ratio between the party representatives in the assembly would lead 
one to suppose. However, assuming a decided majority for imme- 
diate independence, the result is one which I thought possible even 
while I was urging the creation of the assembly. It is not a disap- 
pointment. If it indicated that a majority of the representatives 
elected bv the people were a body of irreconcilables determined to 
do nothing but obstruct the present government, it would indeed 
be discouraging ; but I am confident from what I know and hear of 
the gentlemen who have been elected that, while many of them 
differ with me as to the time in which the people of the islands will 
become fit for complete self-government, most of them have an 
earnest desire that this government shall be carried on in the inter- 
ests of the people of the Philippines and for their benefit, and shall 
be made for that purpose as effective as possible. The}^ are thus 
generally conservative. Those whose sole aim is to hold up the 
government to, execration, to win away the sympathy of the people 
in order to promote disturbance and violence, have no proper place 
in this assembly. Had the Filipino people sent such a majority, 
then I should have to admit that the granting of the assembly was 
a mistake and that Congress must abolish it. 

It has been reported in the islands that I was coming here for the 
purpose of expressing, in bitter and threatening words, my disap- 
pointment at the result of the election. Nothing could be further 
from my purpose, nothing could be less truly descriptive of my con- 
dition of mind. I am here, filled with a spirit of friendship and 
encouragement for these members who now enter upon a new field 
in which they have much to learn, but where everything can be 
learned and this duty most efficiently discharged if they are led by 
an earnest desire to assist and guide the government in aiding the 
people. I have no right to appeal to the members of this assembly 
to conduct themselves in the discharge of their high duties in a 
manner to vindicate me in the responsibility I assumed in urging 
Congress to establish this assembly, because they should find a 
stronger reason for so doing in their sworn duty ; but it is not inap- 
propriate for me to touch on this personal feature of the situation, 
because my attitude has been misconstrued and my sympathetic 
interest in, and hope for, the success and usefulness of this national 
assembly have not been properly stated. 

I venture to point out a number of things that you will learn in the 
course of your legislative experience. One is that the real object of 
a legislature is to formulate specific laws to accomplish specific pur- 
poses and reforms and to suppress specific evils ; that he makes a use- 
ful speech who studies the question which he discusses and acquires 
and imparts practical information by which the remedies offered can 
be seen to be applicable to the evil complained of ; that the office of a 



90 SPECIAL REPORTS ON THE PHILIPPINES. 

legislator for a great country like this is one that can be discharged 
conscientiously only by the use of great labor, careful, painstaking- 
investigation and hard work in the preparation of proposed meas- 
ares. One of the most necessary traits in a successful legislator or 
executive is jjatience. Where the sudden change in that which is re- 
garded as a Avrong system may paralyze a necessary arm of the gov- 
ernment, ways and means must be devised to bring about the change 
gradually. There will be a temptation to take up measures which 
will invite the support of popular prejudice rather than measures 
which will really accomplish good for the body politic. Snch a 
temptation exists in older legislative bodies than this, and we can not 
hope that it will be absent from here; but, in the end, the man who 
exerts the most influence in this body and among the people will be 
the man who devotes most conscientiously his time to acquiring the 
information upon which legislation should be based and in explain- 
ing it to his colleagues and his people. The man who is seeking to 
put his adversary or the government in an embarrassing situation 
may win temporary triumph; but the man who himself feels re- 
sponsibility of government, and who, while not concealing or failing 
to state the evils which he considers to exist in the government, is 
using every effort to reform those evils, will ultimately be regarded 
as the benefactor of his countr3^ 

I have not the time and doubtless not the information which would 
justify me in pointing out to the assembly the various subjects 
matter to which they may profitably devote their attention with a 
view to the formulation of useful legislation. They will properly 
feel called upon to devote their attention to public economy in the 
matter of the numerous governmental bureaus which have been made 
the subject of criticism. It is quite possible that they may find in 
their investigations into these matters reasons for cutting off officers 
and bureaus, but I sincerely hope that no such effort will be made 
until a full investigation is had into the utility of the functions which 
the bureau performs and the possibility of dispensing with them. I 
can remember that while I was governor there was much outcry 
against the extravagance of maintaining certain bureaus which in 
subsequent crises in the public welfare proved their great usefulness 
beyond cavil. Of course we shall encounter in this investigation and 
discussion a radical difference between legislators and others as to the 
function which a government in these islands ought to perform. It 
is entirely easy to run an economical government if all that you do 
is to maintain order and if no steps are taken to promote health, to 
promote education, and to promote the general welfare of the inhab- 
itants. It is, of course, the object of the person charged with the 
duty of governing a country to reach the golden mean — that is, to 
make governmental provisions for the w^elfare of the people without 
imposing too great a tax burden for the purpose. The taxes in this 
country are imposed partly by the legislature and partly by Congress. 
The former will constantly have your attention. In so far as the 
welfare of the country is affected by the latter, to wit, the customs 
duties, and can be improved by ^ change of them, it would be wise 
« for the legislature to devote much time and thought to recommenda- 
tions to Congress as to how they should be changed, for I doubt not 
that Congress will be willing and anxious to take such steps as may 



SPECIAL REPORTS ON THE :^HILIPPINES. 91 

commend themselves to the people of the islands in the matter of 
adjustment of duties, having regard to the raising of sufficient revenue 
on the one hand and to as little interference with useful freedom of 
trade as possible on the other. 

As you shall conduct your proceedings and shape your legislation 
on patriotic, intelligent, conservative, and useful lines, you will show 
more emphatically than in any other way your right and capacity to 
take part in the government and the wisdom of granting to your 
assembly and to the people that elected you, more power. There are 
still many possible intervals or steps between the power you now 
exercise and complete autonomy. Will this assembly and its suc- 
cessors manifest such an interest in the welfare of the people and such 
clear-headed comprehension of their sworn duty as to call for a 
greater extension of political power to this body and to the people 
whose representative it is? Or shall it, by neglect, obstruction, and 
absence of useful service, make it necessary to take away its existing 
powers on the ground that they have been prematurely granted? 
Upon you falls this heavy responsibility. I am assured that you will 
meet it with earnestness, courage, and credit. 

In closing I can only renew my congratulations upon the auspi- 
cious beginning of your legislative life in a fair election, and to 
express to you my heartfelt sympathy in the work which you are 
about to undertake, and my confidence that you will justify in what 
you do, and do not do, the recommendations of those who are respon- 
sible for that section in the organic act that has given life to this 
assembly. 



SPECIAL REPORT OF J. M. DICKINSON, SECRETARY 

OF WAR, TO THE PRESIDENT ON THE 

PHILIPPINES, NOVEMBER 23, 1910. 



93 



C O N T E N T S . 



I'age. 

Itinerary 97 

Inspections - 98 

Philippine Independence "8 

Law and order 102 

Legislative Assembly 102 

Education 104 

Philippine Constabulary 104 

Friar lands 105 

Filipinization of the public service 206 

Percentage of American and Filipino employees Ill 

Artesian wells 112 

Animal diseases 112 

Rinderpest * 112 

Surra 112 

Roads 112 

Lepers 113 

Lands in Manila occupied for Army purposes 113 

Penal Institutions 114 

Penal colony 114 

Prisons - 115 

Financial condition 115 

Agricultural Bank 116 

Railroads 117 

Exports and imports l 119 

Health and sanitation 120 

Coal 121 

Hotel 122 

Hospital in Manila 123 

Fodder 123 

Agricultural College 123 

Agricultural conditions 125 

Government of the Philippine Islands ■ 125 

Recommendations 126 

Appendixes — 127 

A.— List of petitions submitted to the Secretary of War during his visit to the 

Philippines and of the petitioners 129 

B. — Hearings before the Secretary of War, held in Marble Hall, Ayuntamiento, 

Manila, on September 1, 1910 131 

0. — Letter of the Nacionalista Party , 152 

D. — Memorandum from both political parties 176 

E. — Message of the Popular Nacionalista Leagxie of the Philippines 180 

F. — Letter of Hon. Manuel Quezon 185 

G. — Statement of American and Filipino employees 186 

95 



SPECIAL REPORT OF THE SECRETARY OF WAR. 



War Department, 

Washington, D. C, November 23, 1910. 
Mr. President: 

In pursuance of your direction I vistecl the Philippine Islands, 
sailing from San Francisco on the 28th day of June last and return- 
ing to Washington on the 7th day of November. 

I reached Manila on Sunday, the 24th day of July, 1910, and 
remained in the islands until September 3, 1910. Of this time, I 
spent 13 days in Manila, the remainder of the time being devoted to 
visiting vgirious portions of the islands. My itinerary was substan- 
tially as follows : 

1910. 
July 24. Manila. 

25. Manila. 

26. Manila. 

27. Fort William McKinley and Manila. 

28. Inspection of Corregidoi* and Cavite. returning in evening to Manila. 
28. Manila, leaving about midnight by boat for Olongapo. 

30. Inspection of Olongapo and Subic Bay, leaving in afternoon by boat for 

Tagudin. 

31. Overland trip by horse from Tagudin to Cervantes. 
Aug. 1. Overland trip by horse from Cervantes to Bontoc. 

2. Bontoc. 

3. Overland trip by horse from, Bontoc to Cervantes. 

4. Overland trip by horse from Cervantes to Tagudin ; leaving Tagudin in 

evening by boat for San Fabian. 

5. Arrived in early morning at San Fabian ; train from San Fabian to 

Camp No. 1 ; automobile from San Fabian to Bagnio, arriving at 
Baguio before luncheon. 

6. Baguio ; Camp John Hay. 

7. Baguio and vicinity ; Mirador Observatory ; stock farm. 

8. Left Baguio about 8.30 a. m. ; automobile to Camp No. 1; automobile 

inspection of Province of Pangasinan ; inauguration of two bridges 
at Dagupan and trade school at Lingayen ; spent night at Lingayen. 

9. Left Lingayen by automobile early morning of August 9 ; arriving at 

Dagupan, took train, returning to Manila, stopping en route at San 
Fernando, Province of Pampanga, and Camp Stotsenberg. 

10. Manila. 

11. Manila. 

12. Manila. 

13. Manila, leaving by boat about midnight for southern trip. 

14. Arrived in afternoon at Lucena, spending night there. 

15. Morning ; by automobile to Antimonan, stopping short time for recep- 

tion and leaving same day by boat for Tabaco. 

16. Tabaco to Legaspl by automobile ; inspection of Batan coal mine, 

island of Batan ; return to Legaspl and Albay ; afternoon and evening 
at Albay ; left same night for Catbalogan by boat. 

17. Arrived Catbalogan afternoon, short stop ; left by boat for Cebu. 

18. Arrived in morning at Cebu; afternoon, inspection of railroad to 

Danao, returning by automobile ; spent night in Cebu. 

117376—19 7 97 



98 SPECIAL REPORTS ON THE PHILIPPINES. 

1910. 
Aug. 19. Cebu ; iiisiiectioii of railroiul to Argno, returning by train to (Jelm ; left 
Cebu for Camp Overton. 

20. Arrived in morning at Camp Overton ; started on overland trip to 

Malabang inspecting Camp Keithley and spending night there. 

21. Continued trip to Malabang, spending night there. 

22. Left Malabang ; trip by boat up Cotabato River to town of Cotabato ; 

evening, left for Zamboanga. 

23. Arrived on morning of August 23 at Zamboanga ; left about midnight 

for Jolo. 

24. Arrived at Jolo in morning ; spent day there ; left Jolo for Puerto 

Princesa. 

26. Arrived in morning at Puerto Princesa ; inspection of Army post : trip 

up Iwahig River to Iwahig penal colony ; evening left Puerto Prin- 
cesa for Iloilo. 

27. Arrived in evening at Iloilo ; spent night there. 

28. Iloilo ; left Iloilo about noon for Capiz, arriving in Capiz in evening ; 

left Capiz about midnight for Manila. 

29. At sea. 

30. Arrived in morning at Manila. 

31. Manila and visit to Los Bahos. 
Sept. 1. Manila. 

2. Manila. 

3. Sailed from Manila about 5 o'clock a. m. 

Practically all of the public institutions at places visited by me 
were examined. I went into the details of administration with as 
much care as the time permitted. Both in public and private audi- 
ences, opportunities were given everywhere to all who desired to 
freely discuss any questions with me. Several public hearings were 
held by previous announcement in Manila and all were free to attend. 
At all points visited the Army posts were inspected. I gave special 
attention to Corregidor and its defenses, spending a day there. In 
all that I said, both publicly and privately, I held steadily in view 
the statement made by you to the President in your special report of 
January 23, 1908, that— 

the national policy is to govern the Philippine Islands for the benefit and wel- 
fare and uplifting of the people of the islands and gradually to extend to them, 
as they shall show themselves fit to exercise it, a greater and greatei' measure 
of popular self-government. 

The work of preparing the Filipinos for popular self-government 
is steadily progressing along the lines which have been approved by 
you. I shall refer more particularly to the various kinds of adminis- 
trative work, but will here say that the administration of the various 
departments is in a generally satisfactory condition, and that the best 
results are being attained with the means at hand and under the con- 
ditions that must be ccmtended with. 

On the whole I believe that the administration of the islands is 
such that it should give satisfaction to the American people. 

PHILIPPINE INDEPENDENCE. 

In your report above referred to you say (p. 7) : 

What should be emi^hasized in the statement of our national policy is that 
we wish to prepare the Filipinos for popular self-government. This is plain 
from Mr. McKinley's letter of instructions and all of his utterances. It was not 
at all within his purpose or that of the Congress which made his letter part of 
the law of the land that we were merely to await the organization of a Philip- 
pine oligarchy or aristocracy competent to administer government and then turn 
the islands over to it. On the contrary, it is plain, from all of Mr. McKinley's 
utterances and your own, in interpretation of our national purpose, that we 



SPECIAL KEPORTS ON THE PHILIPPINES. 99 

are the trustees and guardians of the whole Filipino people, and peculiar. y of 
the ignorant masses, and that our trust is not discharged until those masses 
are given education sufficient to know their civil rights and maintain them 
against a more po\^•erful class and safely to exercise the political franchise. 

Yoli also stated (p. 8) : 

Another logical deduction from the main proposition is that when the Fili- 
pino people as a whole show themselves reasonably fit to conduct a popular self- 
government, maintaining law and order and offering equal protection of the 
laws and civil rights to rich and poor, and desire complete independence of the 
United States, they shall he given it. The standard set, of course, is not 
that of perfection or such a governmental capacity as that of an Anglo-Saxon 
people, but it certainly ought to be one of such popular political capacity that 
complete the independence in its exercise will result in progress rather than 
retrogression to chaos or tyranny. 

By the standard thus laid down, the Filipino people are-substan- 
tially in the same attitude as when you visited them in 1907. Train- 
ing in administrative work and education is doing much, but they 
have affected such a small percentage of the population that the 
change is hardly sensible. 

The results will manifest themselves in a rapidly increasing ratio 
when those who are now being educated reach an age when their 
influence can be felt in public life. There are very many highly 
educated Filipinos, many men of talent, ability, and brilliancy, but 
the percentage in comparison with those who are wholly untrained 
in an understanding of, and the exercise of, political rights inider a 
republican form of government is so small, and under the best and 
most rapid development possible under existing conditions will for 
a long period continue so small that it is a delusion, if the present 
policy of control of the islands by the American people shall con- 
tinue, to encourage the Filipino people in the hope that the adminis- 
tration of the islands will be turned over to them Avithin the time 
of the present generation. The only inhabitants of the islands that 
are making any marked progress in preparation for self-government 
are the Filipinos proper, and, as stated, but a small percentage of 
these are sufficiently educated to understand and administer repub- 
lican institutions. The masses of them have no knoAvledge or con- 
ception of self-government, take no real interest in and have no 
knowledge of general "administration, and are under the control of 
leaders whose Avill is practically their law. 

Caciquism, i. e.. local " bossism," is just as potential now as ever. 

A keen interest is manifested in education and the people cheer- 
fully submit to the burden of taxation imposed, both for general 
education and for manual training. It can not, however, be expected 
that mere education in schools will give that training to a people 
which is necessary for sustaining the fabric of a constitutional govern- 
ment. The Filipino people proper present the most encouraging 
phase of the question. They constitute about 91 per cent of the entire 
population of the islands. Of the remaining population about 40 
per cent are wild tribes who inhabit northern Luzon. These people 
haVe absolutely no conception of government except that of force, 
to which, if justly administered, they cheerfully submit. Until 
recently many of them were heaclhunters, and now they are only 
restrained from savage practices by military control. It is more than 
doubtful if any kind of training will make them capable, as a mass, 
of intelligently participating in the administration of self-govern- 



100 SPECIAJL REPORTS ON THE PHILIPPINES, 

iiient. Certainly no such transformation can be expected, imcler the 
most favorable conditions, within a century. 

If the withdrawal by the United States from the administration 
of political affairs of the Filipinos shall be postponed until these 
people are fit for participation in self-government, then the time 
therefor will necessarily be in the very remote future, if it shall ever 
arrive. My judgment is that if the masses of the Filipino people shall 
attain to that degree of fitness that will warrant the turning over to 
them of political autonomy they can be intrusted to take over the 
control of these wild tribes, and that the realization of their own 
political independence should not be substantially retarded by having 
their political fate linked with people so backward and comparatively 
so small in nimiber inhabiting the same island with them. 

The Moro Province presents greater difficulty. There are about 
500,000 Moros and Pagans living in the area confined geographically 
to the Sulu group, the Lake Lanao Basin, the Eio Grande Valley, and 
inhabiting numerous points near the mouths of small riv^ers and in 
protected bays along the coast line of the Zamboanga Peninsula 
and the southern coast of Mindanao, reaching to the Gulf of Davao. 
In this area, principally in the vicinity of Zamboanga and Dapitan. 
with small villages at Iligan, Jolo, Cotabato, Davao, Caraga, Ba- 
ganga, and Catcel, there are about 50,000 Christian Filipinos, many of 
whom have gone there in recent j^ears. The Moros are Mohammedans, 
and are firmly fixed in their religious belief. They are warlike, 
manly, independent, and have a strong hostility for the Filipinos. 
They have no conception of a republican form of government. The 
only government which they know is autocratic. They are peaceful 
noAv, because they have been subjected to military power and are con- 
trolled with firmness and justice, which they appreciate. The main 
province of our army among the Moros is merely to keep the peace 
among them. Thej^ would have to be essentially re-created to make 
of them an integral governing part of a republican government unit- 
ing them with the Filipinos. If Filipino independence is to be post- 
poned until such a condition can be brought about, then its realization 
is so remote as to make it not worth while now being contemplated. 
If, on the other hand, a separate government for and by the Moros 
be erected, it is certain that it would be but a short time before the}^ 
Avoulcl be taken by some other nation, unless the United States should 
extend its protectorate over them. 

Advantage was taken of the announcement of my coming by 
politicians, through the press and in other ways, to stimulate a 
general demand for immediate independence. The impression was 
made upon the minds of many of the masses that the Secretary of 
War had either the power to grant immediate independence or that 
reconmiendations made by him would result in the granting of 
immediate independence. In Manila and throughout my journey, 
wherever Filipinos were established in any numbers, the result of 
this teaching was made manifest by the erection of numerous arches 
with inscriptions, either asking or demanding independence, some of 
them using the term " immediate independence," and by the speeches 
of the orators and the presentation of petitions and letters. The 
similarity in the movements everywhere and the form of expression 
indicated very clearly that a concerted campaign had been made to 



SPECIAL KEPORTS ON THE PHILIPPINES. 101 

elicit such demonstrations. I do not mean by this to indicate that 
these were not exponents of their genuine feeling, for the nature of 
our relations to the Philippines and our purpose in respect to them 
as defined in all authoritative utterances are not only compatible 
with, but a stimulant to, the growth of such sentiments. The sig- 
nificant and questionable feature was that stirring up the people 
to such demonstrations was calculated to engender expectations as 
to immediate* independence which would certainly be disappointed, 
and thereby result in discontent with the present administration of 
affairs, and operate as an encouragement to those who are sowing 
the seeds of discord between the American Government and the 
Filipino people, all of which tends to retard the development for 
which we are striving. 

Inasmuch as I promised all who addressed communications to me 
on the subject of Philippine independence and other matters of a 
public nature to bring their views and wishes directly to your atten- 
tViU, I append herewith a list, marked " Appendix A," setting forth 
the names of the petitioners and the subjects of the petitions. 

I also append the report, marked " Appendix B," of the public 
hearing at Manila in the Marble Hall of the Ayuntamiento, on Sep- 
tember 1, 1910, which was largely attended and attracted much 
notice in the public prints. 

Inasmuch as they are not merely expressions of personal views, 
but are authoritative expressions of the two political parties in the 
Philippines, I call your special attention to the memorials of the 
Nacionalista. of the Nacionalista and Progresista parties, and of the 
popular Nacionalista League, attached hereto and marked Appen- 
dixes " C," " D," and "E," respectively. 

There is no doubt that so far as publicly expressed, the general 
desire of the Filipinos is for what they denominate " immediate 
independence.'' 

Those who are intelligent do not expect immediate independence, 
even if their views should be acceded to on the part of the American 
people, but rather that steps shall be taken as early as practicable 
which will result in the near future in turning over to the Philippine 
people the administration of their own affairs. ^Vliile, as stated, 
these are the only views publicly expressed, I became convinced from 
reliable evidence that many of the most substantial men, while not 
openly opposing the demands publicly voiced, would regard such a 
consummation with consternation. They realize that the govern- 
ment would fall into the hands of a few who would dominate the 
masses; that the administration, even without outside interference, 
could not be successfully carried on; that there would be internal 
dissensions and probably civil war; and that if the United States 
did not interfere they would fall an easy prey to some foreign power. 

I took prompt steps to undeceive, so far as I could, those who had 
formed a misapprehension either as to my power or mission, and 
reiterated in public speeches that the future relations between the 
Philippines and the United States would be determined by Congress, 
and that there had been no authoritative departure from the doc- 
trines laid down by you in your utterances upon that subject when 
Secretarv of War. 



102 SPECIAL REPORTS ON THE PHILIPPINES. 

LAW AND ORDER. 

At the present Avriting peace, law, and order prevail tliroiighout 
the islands. There is no organized opposition anywhere to the 
United States Government. Within the last year only two out- 
breaks have occurred, and they were insignificant. In the island of 
Palawan some Moros had been lawless, and Gov. Miller, now de- 
ceased, had notified them that they must surrender. After the un- 
fortunate drowning of Gov. Miller, Commissioner Worcester w^ent 
to the island and he and his party were met as friends and after- 
wards were treacherously attacked by these Moros. The attack 
Was repelled, resulting in the death of 10 Moros. A number of these 
people were fugitives from justice from Mindanao and Borneo. 
There w^as no general outbreak. 

While I was in Manila, Mandac, who had been convicted of killing 
and fled the country, forfeiting his bond, returned to the islands and 
w^ent to the Province of Nueva Vizcaya and captured the town of 
Solano, looted the treasury, and carried off several priests. There 
was a slight engagement with the constabulary and his forces were 
routed. He himself was captured by the natives and turned over to 
the authorities, which is an evidence of good will on the part of the 
people toward the government. 

The ladrones or robber bands are almost if not entirely suppressed. 
One of their leaders, Felipe Salvador, was captured while I w-as in 
Manila. His followers had long since deserted him and he was a 
fugitive from justice. 

There is no disorder at present in the northern provinces. At 
Bontoc, the headhunting tribes, who a year w^ere engaged in taking 
heads, met together while I was there, in a parade and general fes- 
tivities. There have been no hostilities between these people within 
the last year. I talked with the chief men and they expressed them- 
selves as satisfied with the administration of the governors of these 
provinces. Now that they feel safe in their lives and property thev 
are devoting themselves with a feeling of security to agriculture and 
are enjoying more of the comforts of life than at an^^ previous time. 
Substantially the same state of peace prevails in the Mountain and 
the Moro Provinces, containing the non- Christian tribes, and the 
same content with the government. All of these wild people have 
found olit that the United States are not exploiting them, but that 
everything that is done in the way of control results to their imme- 
diate benefit, and that what is exacted from them in taxation is spent 
hi their midst for roads, educational and other public purposes, the 
result of which they see and appreciate. 

THE LEGISLATIVE ASSEMBLY. 

Although the legislative assembly is controlled by the Nacional- 
ista Party, which was organized in opposition to those who favored 
American control, aucl it was anticipated that they would use their 
}.>ower to obstruct administration, the result has demonstrated that 
responsibility steadies action. So far from raising captious oppo- 
sition, they have enacted laws for the promotion of development and 
progress along the lines advocated by the Governor General. They 
have been liberal in their support of education and internal improve- 
ments. 



SPECIAL REPORTS ON THE PHILIPPINES. 103 

Laws on the following subjects were passed at the last session of 
the ^hilipjDine Legislature : 

To transfer the bureaii of agriculture from the department of the interior to 
that of public instruction. 

To increase the appropriation for current expenses of the bureau of education 
for the fiscal year 1910, and appropriating ?=150,000 therefor. 

To provide for the construction of barrio schools upon public lands or lands 
of the municipal, provincial, or insular government, and to prohibit their sale 
or use for other than school purposes. 

To establish classes for the instruction <uid training of male and female 
■ nurses under the supervision of the director of health. 

To extend to 10 years the period during which timber, tirewood, resin, stone, 
earth, and other forest products may be cut or taken from the public forests 
without the payment of forestry charges. 

To provide for the filing with the executive bureau of the first deed of trust, 
dated May 19, 1909, executed by the Manila Railroad Co. in favor of the govern- 
ment of the Philippine Islands, and subordinating agreements, and exempting 
said instruments from payment of stamp taxes. 

To fix the annual tax on the assessed value of the real estate of the city of 
Manila for 1910 at 1* per cent. 

To amend the " provincial government act "' by further extending the po\\'ers 
of provincial governments. 

To create a conunissioned and enlisted service within the bureau of naviga- 
tion, the creation of a pension fund in connection therewith, and for the punish- 
inent of offenses against good order and discipline w^ithin such service. 

To establish a sanitarium at Sibul, Province of Bulacan. 

To provide for the celebration of the fiftieth anniversary of the birth of Dr. 
Jose Rizal. 

To authorize the appointment of high-school students as government pupils 
while pursuing a course of training for teaching. 

To authorize the creation of special classes of superior instruction for munici- 
pal or insular teachers. 

To amend the " postal savings bank " act by providing an additional class of 
securities for the investment of postal savings bank funds. 

To confirm the action of the governor general in deporting from the islands 
certain persons of Chinese nationality. 

To appropriate funds for sundry expenses of the University of the Philippines 
during the fiscal year 1911. 

To make appropriations for public works and permanent improvements. 

To make appropriations for sundry expenses of the insular government for the 
fiscal year 1911. 

To amend the act providing for the widening of streets in the municipality 
of Cebu. 

To appropriate F50,000 for the relief of suffering from public calamities. 

Only 2 of the 22 measures proposed by the administration were 
rejected. 

AVliile there were differences in the views of the assembly and the 
governor upon important questions, they did not result in any politi- 
cal impasse, and the administration has proceeded without obstruction 
in any of its branches. 

Nineteen bills were presented to the commission by the assembly. 
Sixteen were approved, one was postponed until the regular session, 
one (referring to non-Christian Provinces and therefore not coming 
within the jurisdiction of the assembly) was tabled at that session 
and is now up for passage by the commission, and one, providing for 
the remission of land and cedula taxes under certain conditions, was 
refused passage. 

I found that while the leaders of the Nacionalistas are constant and 
insistent in their demands for immediate independence and are con- 
stantly stimulating the masses to make declarations which are intol- 
erant of the American administration, yet at the same time they are 



104 SPECIAL REPORTS ON THE PHILIPPINES. 

pursuing a broad and enlightened policy in respect of education, in- 
ternal improvements, and general development. 

EDUCATION. 

The schools were visited by me wherever I went. At a number of 
places handsome, modern, well-equipped, well-lighted, and well-aired, 
substantial buildings of reinforced concrete have been erected, which 
would be a credit to communities of like number in America. A very 
deep and widespread interest is being manifested in education on the 
part of old and young. Children are taking a keen interest in their 
vvork. Those upon whom taxes for education are imposed cheer- 
fully bear the burden, and so far from being in opposition to increas- 
ing the facilities for education, they heartily cooperate in the plans 
for extension. The children are making good progress in learning 
the English language. 

In an audience at Capiz, where addresses were made in Spanish and 
English, it was manifest that English speakei's were as well under- 
stood as were those who spoke in Spanish. I sought to impress upon 
the Philippine people that in no way could the American people take 
more effective steps for laying the foundations for independent gov- 
ernment than hj giving them a common language. They now have 
about 16 different Malay dialects, and. while Spanish is spoken among 
the educated, it is confined to approximately 10 per cent of the entire 
population and, notwithstanding its long use in the islands, has never 
become the medium of general communication. With the progress 
now being made, English will be understood by the next generation 
generally throughout the islands, and with this common means of 
speech will come a community of thought and action which could not 
be brought about in any other way. 

The present law requires the use of English in the courts on and 
after January 1, 1913. I believe that it would be beneficial to the 
progress of the islands if speaking the English language should, on a 
date not long thereafter, be made a condition precedent to the right 
to hold any office filled by appointment by the Governor General. 

THE PHILIPPINE CONSTABULARY. 

This is a useful and effective body of men now consisting of 322 
officers and 4,451 enlisted men operating from 138 stations. The 
commissioned officers are generally Americans, but a number of Fili- 
pinos are also officers, and the policy is to fill vacancies by their 
appointment as rapidly as they meet the requirements. They are 
maintained much more cheaply than our American soldiers or Philip- 
pine Scouts. Their pay is less, their outfit more economical, and they 
subsist upon the country, thus saving the enormous cost of trans- 
portation incident to supplying the army. 

Besides serving as a military force to keep order and suppress 
insurrection, they are very efficient as auxiliaries in sanitary work, 
especially during epidemics. Although they do not receive the same 
amount of training and military discipline which the scouts do, yet 
they are, looking especially to their availability for sanitary work, of 
greater utility than the scouts. I am considering recommending the 
conversion of the scouts and constabulary into one body, the work to 



SPECIAL REPORTS ON THE PHILIPPINES. 105 

be substantially that now done by the constabulary. My present 
opinion is that this will result in a saving to the United States Gov- 
ernment of about a million dollars a year, and that the results 
achieved will, on the whole, be more valuable than will be brought 
about by maintaining separate organizations. The general idea is 
to muster out the scouts and turn over to the Philippine government 
enough money to maintain an equal number of men as constabulary, 
the whole constabulary force to be somewhat upon the footing of the 
national guards of the States. It has been roughly estimated that 
the amount which would be thus turned over to the Philippine 
government would be less by a million dollars than the amount now 
expended by the United States for the maintenance of the scouts. 

In your report to the President j^ou stated that when you were in 
the islands the native papers condemned the constabulary, but that 
during the two following years a change had taken place and that 
nothing was more popular in the islands than the constabulary. I am. 
happy to say that this popularity is unabted, and that the constabu- 
lary and its administration are well intrenched in the respect and 
confidence of the people. The men and the native noncommissioned 
officers take great pride in their organization. They are well set up, 
efficient, keen in their work, and would be an effective force in case 
of foreign invasion. They conciliate constantly the people toward 
the administration, are learning the English language and habits, and 
thus are the medium of wholesome influences upon their people. I 
asked one of them in the Bontoc country whether or not he would 
stand by our flag in case of trouble with a foreign power. He 
answered : 

Do you think I would hesitate to do thut? Did I not recently in the discharge 
of my duty, when ordered, tire upon and kill one of my own townsmen who was 
defying the enforcement of the law? 

FRIAR LANDS. 

Much notoriety has been given in Congress and in the public press 
to recent sales of the friar lands. These lands amounted in all to 
302,000 acres. Of these 260,000 are near Manila, 25,000 are in Cebu, 
and 107,000 are in the Provinces of Mindoro and Isabela. Six million 
nine hundred and thirty thousand four hundred and sixty-tAvo dollars 
and seventy cents were paid for the lands, and the price was con- 
sidered large. It was anticipated at the time that in disposing of 
them there would be loss to the Government. The purchase was 
made, not as a speculation nor for the purpose of distributing the 
lands, but as stated by you in your report, " on political grounds and 
for the purpose of bringing on tranquillity." 

The question of distribution was only incidental to the sale and 
reimbursement. The main reason for the purchase was to eliminate 
the friars as landholders.' Inasmuch as the Philippine government 
had burdened itself with a bonded debt drawing interest to get rid of 
these pernicious landholders, it seemed perfectly plain that it would 
be following the dictates of common sense to dispose of the unoccu- 
pied lands as soon as possible on the most advantageous terms. When 
the proposal was made to purchase the Mindoro estate at a figure 
fully reimbursing the government for the cost of the land, with in- 
terest and cost of survey and administration added, I could see no 



106 SPECIAL REPORTS ON THE PHILIPPINES. 

good reason why the sale should not be made. I shall not go into the 
question of the legality of the sale. The opinion of the Attorney 
General certainly was sufficient to warrant the administration in 
making tlie sale. The island of Mindoro contains 3,851 square miles 
and 28,361 inhabitants, which is less than eight persons to the square 
mile. It is practically undeveloped. There was no demand by any 
inhabitants there for these lands. It is not probable that they would 
have been taken up by any inhabitants at any time in the near future. 
There are hundreds of thousands of other acres of wild lands in the 
island of Mindoro just as valuable and fully as capable of being used 
for the culture of cane as are these lands. Lands can be gotten there 
from the government for a price cheaper than that paid for the Min- 
doro estate. There are over 20,000,000 acres of public lands fit for 
agriculture in the islands and inducements upon the most favorable 
terms are oifered to the inhabitants to take them up. 

Unless the Mindoro estate had been sold as a whole to people capa- 
ble of handling and developing it, it is not probable that the lands 
could have been disposed of at any time in the near future. At the 
rate of interest the bonds draw^, the cost of the lands w^ould in 30 
years, when the bonds mature, have represented more than treble 
the original cost. The Philippine government needs its resources for 
internal improvements, and it would have been poor financiering to 
pay interest on the bonds and finally the principal and continue to 
hold these lands until they would be taken up by inhabitants of the 
islands, which would mean in the remote future. 

The main opposition to the sale of these friar lands in large bodies 
in the Philippines is based upon opposition to the investment of any 
foreign capital, and especially American capital, in the islands. The 
opinion is held by those who mainly voice this opposition that the 
investing of foreign capital, and especially American capital, in the 
Philippines will in time develop such a demand for the continuance 
of American control as will tend to postpone, if not effectually de- 
stroy, the realization of Philippine independence. 

The thought is that the powder so exerted w^ould be sufficient to 
dominate Congress and make the American people change the policy 
hitherto declared " to govern the Philippine Islands for the benefit 
and welfare and uplifting of the people of the islands and gradually 
to extend to them, as they shall show themselves fit to exercise it, a 
greater and greater measure of popular self-government," * * * 
and " that when the Filipino people as a whole show themselves rea- 
sonably fit to conduct a popular self-government, maintaining law 
and order and offering equal protection of the laAvs and civil rights 
to rich and poor, and desire complete independence of the United 
States, they shall be given it." 

Inasmuch as the charges publicly made in Congress and in the 
public prints involved, besides the general question of sale, the con- 
duct of certain officers in the Philippines, I made an investigation in 
respect to these, feeling that I had a duty to perform independent of 
any action of Congress, and that if these officers had been guilty of 
any misconduct it was not only the right but the duty of the admin- 
istration to deal with them without waiting for congressional action. 
These charges involved F. W. Carpenter, executive secretary, and 
Dean C. Worcester, one of the commissioners. I called upon Gov- 
ernor General Forbes, Mr. Carpenter, and Mr. Worcester for a state- 



SPECIAL REPORTS ON THE PHILIPPINES. 107 

merit of the facts, and sought in other ways, and especially by calling 
on Filipinos who were opposed to the sale of the Mindoro and Isa- 
bela estates, for information as to any official misconduct on the part 
of either Mr. Worcester or Mr. Carpenter. 

I learned nothing whatever detrimental to the character of either 
of these men. I found that there was considerable opposition to Mr. 
Worcester, growing mainly out of an abruptness of manner in official 
relations. In this way he had offended some people and aroused 
their opposition. Several of such people spoke to me of this, but 
upon being asked the direct question they said that they knew of 
nothing affecting the integrity of his action. 

Ordinarily it is invidious to single out some officials for commenda- 
tion, but in view of the attack which has been made upon these men, 
I feel that it is right to give the result of my inquiry. 

I refrained from any close association with, and reserved judgment 
as to them until I had exhausted all sources of information. Based 
on all that I could learn, my judgment is that they are honest, faith- 
ful, capable men, devoted to their work, and that it would be a loss to 
the Government if anything should withdraw them from the public 
service. Mr. Worcester has a more general and more exact knowl- 
edge of the Philippine Islands, their fauna, flora, resources, and in- 
habitants than any other man, without exception. He is a mine of 
useful and practical information, which he is constantly turning to 
account for the benefit of the islands. Having a liberal education and 
a technical education, he has applied himself with great industry and 
devotion to a study of the Philippine Islands. He has seriously 
impaired his health in this work. While he has cultivated the for- 
titer in re, rather than the suaviter in modo, and thus has made for 
himself opposition, the real good accomplished by him so far out- 
weighs any objections that might be raised to his somewhat aggre- 
sive ways, that the latter are far outweighed in the general account. 
Though not directly stated, the inference was drawn from the charges 
made that he as secretary of the interior had approved an unlawful 
-sale of some of the friar lands to his nephew, E. L. Worcester. Mr. 
E. L. Worcester never purchased an acre of the friar lands. He 
did lease some public lands, but in the amount authorized by law 
and at the prices paid for such lands by other people. He had a 
right to lease these lands and his uncle had no right as secretary of 
the interior to deprive him of the right to lease them. I found no 
evidence that Secretary Worcester is interested directly or indirectly 
in these lands. He stated positively that he was not. I did not hear 
anyone in the Philippines say that he was. When the application 
to lease these lands was made, the fact was brought to the attention 
of Gov. Smith. There was no secrecy whatever about it. I found 
no complaint among Filipinos as to the lease of these lands. Their 
complaints applied to the sale of the friar lands, and especially the 
Isabela and Mindoro estates, but not to that part of the friar lands 
purchased by Mr. Carpenter. The purchase was made by Mr. Car- 
penter not only with the knowledge but at the instance of the Gov- 
ernor General. He paid the full price provided for under the law. 
He has not dispossessed any Filipino. On the contrary, after his 
contract was made, he permitted Filipinos to come in and participate 
in his purchase. None of his official duties were in any way con- 
nected with the administration or sale of these lands. I do not favor 



108 SPECIAI. REPORTS ON THE PHILIPPINES. 

public officials from America in the Philippines purchasing public 
lands, but I find that it has hitherto been the policy of the adminis- 
tration to encourage investments by employees in the islands. So 
far from finding any objections on the part of Filipinos to the pur- 
chase by Mr. Carpenter, everyone with vv^hom I spoke in regard to it, 
and I spoke with many of the leading men, entirely approved of it. 
In such conversations they took occasion to voluntarily bear testi- 
mony to the high character and standing of Mr. Carpenter, their 
confidence in his integrity, his- usefulness in the public service, and 
to the valuable offices which he had performed in maintaining good 
relations between Filipinos and Americans. Upon the question of 
his purchase, I received a letter from Hon. Manuel Quezon, Resident 
Commissioner, as follows: 

Manila, Augmt 12, 1910. 
Mr. Skt.etaky : 

I huvp read carefully ISIr. Frank W. C'arpeuter's rei)ly to the allegations made 
against him in Congress recently in regard to the lease and purchase hy him of 
friar lands, and, complying witli ycnir request for an expression of opinion as to 
the truth of Mr. Carpenter's statements, I beg to say that I am convinced that 
they are time. 

Furthermore, I beg to confirm all I have stated orally to you regarding the 
confidence and respect in which the Filipino people hold Mr. Carpenter, officially 
and personally. 

Respectfully, yours, 

Manuel L. Quezon. 
Resident Commis-^ioner to the United States for the Philippines. 

To the honorable the Seceetaky of War, 

Manila, P. I. 

The following letter from Mr. Osmeiia, the speaker of the assem- 
bly, indicates Mr. Carpenter's standing with the Filipinos : 

The (tOvernment of the Philippine Isl.ustds, 

Office of the Speaker, Philippine Assembly, 

Manila, August 30, 1910. 

Sir: I have the honor of confirming, by the present, the information that, re- 
plying to your inquiries, I have personally given you with reference to the con- 
duct, character, and reputation of Mr. Frank W. Carpenter, executive secretary. 

Mr. Carpenter enjoys the highest esteem and confidence among the Filipinos. 
As an official and as a gentleman he has responded at all times to the best hopes, 
and while he has sustained, and does sustain now, close relations with the Fili- 
pinos, his conduct as an official may be presented as a model of intelligence, in- 
tegrity, and zeal. It is known of all that Mr. Carpenter devotes to public affairs 
time and attention much greater than are customarily given to such matters, not 
failing to work for a number of hours on legal holidays. His official bearing with 
all those who in whatever way have had any connection with his office has height- 
ened the regard for him as a man of rare penetration and activity and have gained 
for hiuL and with reason, those active sympathies which beyond respect are 
given to persons who, on compliance with a duty, do it with the generous in- 
terest which can only be felt by those who, entirely devoted to their public offices, 
find a satisfaction in remembering that they are servants of the public and that 
they must conduct themselves as such. 

With respect to the public and private morality of Mr. Carpenter, I do not 
believe there is anyone, among Filipinos at least, that has not the highest con- 
cept of him. Filipinos have complete confidence in Mr. Carpenter and his fruit- 
ful labor of the present, which can only be compared with his distinguished past 
service, constitutes a legitimate and elevated record of honesty, efficiency, and 
patriotism. 

Permit me, Mr. Secretary, to be. 

Very respectfully, yours, Sergio Osmena, 

Speaker, Philippine Assembly. 

Hon. .Jacob McG. Dickinson, 

Secretary of War. 



SPECIAL REPORTS ON THE PHILIPPHSTES. 109 

On January 1, 1910, Commissioner Worcester, secretary of the 
interior, approved the lease of approximately 47,000 acres of the 
Isabela estate, Math option to purchase this estate, to Edward B. 
Bruce, of Manila. This estate consisted of approximately 49,500 
acres. The sale price fixed was ^422,500, Philippine currency, to- 
gether with interest thereon at the rate of 4 per cent per annum from 
and including the 1st day of January, 1910, the payment of the pur- 
chase price or installments thereof, together with all interests accru- 
ing thereon, to be made in accordance with the provisions of the friar- 
land act as amended. This sale price included the cost to the Govern- 
ment, together with all charges for interest and administration. 

This Isabela estate is one of the practically unoccupied estates pur- 
chased from the friars and is situated in a sparsely settled part of the 
center of the island of Luzon. 

At the time the contracts were made for sales in large amounts of 
these friar lands it was not supposed that objection would be raised 
thereto. The idea was to handle this, in so far as these vacant lands 
were concerned, as a business proposition. 

In so much, however, as opposition has been declared and Congress 
has provided for an investigation of this matter, no more sales of 
these lands in large quantities will be authorized until the situation is 
cleared up. 

Eeports covering this matter in full by Governor General Forbes, 
Secretary of the Interior Worcester, and Executive Secretary Car- 
penter have been prepared and submitted to me. These reports 
were printed in Manila. 

I also attach a letter (marked "Appendix F ") from Resident 
Commissioner Quezon, which gives concisely the prevailing Filipino 
view of the land question. 

FILIPINIZATION OF THE PUBLIC SERVICE. 

In your special report of 1908, under the heading " Civil service," 
you say : 

Still in many of the bureans the progress of Filipinos to the most responsible 
places is necessarily slow, and the proportion of them to be found in positions 
of high salaries is not as large as it ought to be in the near future. The win- 
nowing-out process, however, is steadily reducing the American employees in 
the civil service. 

One of the demands most urgently brought to my attention was 
that the work of increasing the proportion of the Filipino employees 
is not being pressed, and that, especially in the higher salaries, there 
is discrimination against Filipino employees. The Filipinos bear 
the burden of government and should, so far as is consistent with 
proper administration and the maintenance of the present attitude 
of the United States in the government of the islands, be given a 
preference in employment. "V^^^lile in the beginning and for a long 
while thereafter it was necessary to pay American employees such 
salaries as would induce them to leave their homes, go to a distant 
country and incur the inconvenience incident to life there, and 
while it was sound policy to pay higher salaries to American em- 
ployees, I see no reason why such course should be indefinitely con- 
tinued. In my judgment, the time has come when for the same 
efficiency and for the same class of work done by new employees 



110 



SPECIAL, REPORTS ON THE PHILIPPINES. 



salaries should be fixed for the places, and they should be filled by 
competent persons without discrimination as between Filipinos and 
Americans. 

In your special report in 1907 you showed that there were 2,616 
Americans and 3,902 Filipinos employed. On January 1, 1910, there 
were employed 2,633 Americans and 4,639 Filipinos. 

Below is a table showing a comparison of the number of American 
and Filipino officers and employees having a permanent status in 
the service and the salaries paid on January 1 of the years given : 



Year. 



Officers and 
employees. 



Ameri- 
cans. 



Fili- 
pinos. 



Salaries paid. 



Americans. 



Filipiiios. 



Average salaries. 



Americans. 



Filipinos. 



1907 
1908 
1909 
1910 



2,616 
2,479 
2,659 
2,633 



3,902 
4,080 
4,397 
4,639 



p-7,869,242 
7, 749, 236 
8,576,962 
8.755,486 



^•3, 2:34, 494 
3, 686, 855 
4,018,988 
4, 296, 896 



P-3,008.12 
3,125.95 
3, 225. 63 
3. 325. 29 



^■828. 93 
903. 64 
914.03 
926.25 



It will be seen that since 1907, when you made your special report, 
there has been, up to January 1. 1910, an increase of 1-7 in the num- 
ber of American and of 737 in that of Filipino employees, and that 
there has been an increase of $443,122 in the amount paid American 
and of $531,201 in that paid to Filipino emploj^ees, an increase in the 
average salaries paid to Americans of $158.59 and in those to Fili- 
pinos of $48.66. 

The following table shows the percentage of American and Fili- 
pino employees and the percentage of salaries paid to them for the 
years mentioned, and the increase and decrease in the number of 
Americans and Filipinos employed between the years 1903 and 1910, 
also the increase and decrease in the number of Americans and 
Filipinos employed in the years 1909 and 1910 : 



Year. 


Employees. 


Salaries. 


Americans. 


Filipinos. 


Americans. 


Filipinos. 


1907 


Per cent. 
40 
38 
38 
36 


Per cent. 
60 
62 
62 
64 


Per cent. 
71 
68 
68 
67 


Per cent. 
29 


1908 


32 


1909 


32 


1910 


33 







1903-1910: 

Decrease in number of Americans 

Increase in number of Filipinos 

Increase in salaries of Americans 

Increase in salaries of Filipinos 

Increase In average salaries of Americans . 

Increase in average salaries of Filipinos. . . 
1909-1910: 

Decrease in number of Americans 

Increase i n number of Fil i oinos 

Increase in salaries of Americans 

Increase in salaries of Fili oinos 

Increase in average salaries of Americans. 

Increase in average salaries of Filipinos.. . 



Per cent. 

. . . . 5. 2 

. . . . 72. 

.... 21.0' 

. . . . 96. 3 

. . . . 27. 6 

.... 14.1 



1.0' 
5.5 
2.1 
6.9- 
3.1 
1.3 



SPECIAL REPORTS ON THE PHILIPPINES. Ill 

During the past year the Philippine government has called on the 
Chief of the Bureau of Insular Affairs to send out American stenog- 
raphers and deck officers. This demand might have been anticipated 
and Filipinos educated for both of these purposes, as they are exceed- 
ingly apt for both classes of service. The general question was taken 
up with the Governor General and the heads of departments and 
bureaus. It is the fixed polic}^ of the administration to proceed as 
rapidly as the good of the service will permit in increasing the Fili- 
pino employees, and I am satisfied that there will be a hearty coopera- 
tion upon the part of all. The Governor General has always favored 
this course. 

I call special attention to the bureau of printing, which is operating 
all kinds of modern machines and is doing the highest class of work 
in printing and binding. In this department there are 348 employees, 
of whom 318 are Filipinos-. It is true that this, on account of the 
nature of the work, can not be taken as a standard for other depart- 
ments and bureaus. 

Within the last year it has been necessary to employ Americans 
on account of the requirement for experts to contend with the rinder- 
pest and expert surveyors and engineers for public works. 

In the municipal service in the year 1910 there are 102 Americans 
and 12,417 Filipinos employed. 

I append as a part of my report a table, marked "Appendix G," 
showing, for the several years set out, the number of Americans and 
Filipinos employed in the various services therein mentioned. 

Without a careful analysis of these tables one might get a false 
impression of the extent to which the government of the islands has 
been Filipinized during the period covered by them. They show the 
increase of Filipinos in the civil service of the islands, but it should 
be observed that in the period covered by these tables the number of 
Filipino members of the commission has been increased 33^ per cent, 
the number of judges of first instance by 100 per cent, and there has 
been created the Philippine Assembly, an elective body composed 
exclusively of Filipinos. 

To-day four of the nine members of the Philippine Commission, 
which constitutes the upper house of the legislature, are Filipinos. 
The entire lower house is composed of Filipinos. In the executive 
departments the important portfolio of finance and justice is held 
by a Filipino. Three of the 7 justices of the supreme court, includ- 
ing the chief justice thereof, are Filipinos, and 10 of the 20 judges 
of first instance are Filipinos, while practically all the lower judicial 
officers are Filipinos. 

ARTESIAN WELLS. 

A wonderful change in health conditions has been brought about 
by the procurement of wholesome water through artesian wells. 
This work was in its inception when you were in the islands in 
1907, and has steadily progressed, until now there are in operation 
429 wells. A marked improvement has been shown in the health 
conditions where these waters have been used. The people every- 
where appreciate them and are anxious for them. It seems that no 
water can be found at Iloilo. A number of experiments there have 
failed. 



112 SPECIAL, REPORTS ON THE PHILIPPINES. 

ANIMAL DISEASES. 

RINDERPEST. 

In many portions of the islands, especially in Batangas, Pangasi- 
nan, Cebii, and Occidental Negros, the industry of agriculture was 
almost prostrated through the loss of work animals by rinderpest. 
A specific preventive by inoculation has been found effectual, and the 
disease is well under control. 

At the stock farm at Alabang a herd of about 900 cattle is main- 
tained under the care of experts. All have been inoculated and are 
immune against rinderpest, and sufficient serum is now constantly 
obtained for shipment wherever demanded throughout the islands. 
In addition to the annual appropriation, there was made in No- 
vember, 1909, a special appropriation of 210,000 pesos for this work. 
Too much can not be said in praise of the thoroughly scientific man- 
ner in which it is carried on. The results have been most gratifying,- 
and by the arrestation of the disease, the natural increase of draft 
animals, and the importation from other countries which is being 
carried on under strict quarantine regulations, we can expect that 
within a year or two the supply of work animals will be adequate. 
Much more vigorous quarantine regulations obtain than formerly. 
It is now evident that the disease will be stamped out. 

SUKRA. 

This disease is fatal to horses. It attacks but does not kill cani- 
bao and Indian bulls. So far no cure for it except in rare cases has 
been discovered. Experiments are being made for the purpose of 
finding a remedy, and our experts are hopeful of ultimate success. 

ROADS. 

There has been a marked development in the disposition of the 
people throughout the islands to exert themselves and to assume tax 
burdens for the purpose of securing good roads. The provincial 
board of each Province has decided to levy the ceclula tax and to 
apply the proceeds to the construction and maintenance of roads. 
While there is a great contrast between the roads maintained by the 
municipalities and those maintained by the insular government, yet 
there has been in recent years an increase in the care bestowed by the 
municipal governments upon their roads. The caminero system has 
been established with good results. 

There are now in the islands 3,100 miles of roads under the admin- 
istration of municipalities, 862 miles of first class under control of 
the Provinces, and 46 miles under that of the insular government. 
The roads maintained by the Provinces and insular government can 
generally be compared favorably with the good roads of any country, 
and some of them are as good as could be desired anywhere. This is 
especially true of the Provinces and Pangasinan and Albay, the 
former having recently taken the prize of ?=10,000 offered for the 
best constructed and maintained roads. 

Many miles of mountain trails of easy grade have been constructed. 
I passed over the one from a point 5 miles from Tagudin to Bontoc, 



SPECIAL REPORTS ON THE PHILIPPINES. • 113 

that portion from Cervantes to Bontoc being entirely new and just 
opened. While there is not much commerce to pass over these trails, 
as the people in those sections consume almost all that they produce, 
yet it may be expected that with the continuance of peace and the 
further development of agriculture there will be an increasing sur- 
plus put upon the market. 

These trails promote intercouise between people of the various 
sections and in that way liave a civilizing influence. They afford a 
read,y way for the movement of troops to sections hitherto almost 
inaccessible. The wild people have great respect for and attach a sort 
of sanctity to them, which is manifested by the fact that people pass- 
ing over them are, I am told, never molested. The initial cost was 
comparatively small, owing to the cheapness of the laboi', all of which 
was performed b}^ the wild men of the Mountain Province, many of 
whom gave 10 daj^s of free labor, and to the skill developed by those 
directing the work, but the maintenance on account of the torrential 
rains will probabl}^ be a constant and expensive burden. 

LEPERS. 

The work of segregating the lepers has proceeded to the point that 
now there are but few who have not been transported to the island of 
Culion. It is the opinion of Dr. Victor G. Heiser, who has this work 
in charge, that within a generation or two the disease will have prac- 
tically disappeared from the islands. There are at present about 
3,000 in the colony. But little opposition is now made to the removal 
of those who are affected with the disease. While this brings distress, 
it is nevertheless generally recognized that it is for the common good 
and that those who have the misfortune to be afflicted must bear t'ii6 
sacrifice which fate has forced upon them. 

A large up-to-date hospital of reenforced concrete has just been 
completed. Six Sisters of Charity have devoted themselves to the 
work of nursing. Apparent cures have been effected by the use of 
chaulmoogra oil, and it is hoped that it will be demonstrated to be a 
specific. 

LANDS IN MANILA OCCUPIED FOR ARMY PURPOSES. 

There is a controversy of long standing between military and civil 
authorities in regard to the use of certain property for army pur- 
poses in Manila. It appeal's that a basis of settlement was reached 
some years ago that was then regarded as mutually acceptable, but it 
was not put in such form as to be binding and has never been con- 
summated. 

There should be an early and final adjustment of this matter, for it 
seriously affects the development of the city of Manila and involves 
the determination of a policy in regard to the army establishment at 
Manila. As some of the proposed changes will require the surrender 
by the arm^^ of buildings which it now uses, these can not be effected 
until provision has been made for other accommodations, and this 
will require the construction of buildings at large cost, and therefore 
congressional action. The Governor General representing the civil 
government, and Gen. Duvall representing the army, presented 

117376—19 8 



114 SPECIAL REPORTS ON THE PHILIPPINES. 

their respective views. As to some important points there is agree- 
ment, providing Congress shall provide the necessary buildings. As 
to other points there are differences which must be settled by higher 
authority. The papers are too voluminous to incorporate in this re- 
port. After going over the questions with the Chief of Staff, who is 
familiar with the conditions there, I will present a plan of settle- 
ment embodying such provisions as may require congressional action. 
I carefully examined the various properties in person — first in 
company with the Governor General and afterwards in company 
with Gen. Duvall — and am therefore in position to form my own 
judgment in regard to them. 

PENAL INSTITUTIONS. 

PENAL COLONY. 

A visit was made by me to the penal colony at Iwahig, on the island 
of Palawan. Though an audacious experiment, it has in the results 
attained fully justified the expectations of the wise forecast that 
inaugurated it. It is one of the most interesting and attractive places 
in the islands. The spectacle of some thousand criminals living 
together on a penal reservation of 270 square miles in peace and 
carrying on industrial and agricultural pursuits under an adminis- 
tration largely controlled by themselves is wonderful. The convicts 
there are those v^ho have earned the privilege of going there by good 
behavior at Bilibid during a certain period. 

The administration is under Gov. John H. Evans and the imme- 
diate superintendency of Carroll H. Lamb. Discipline is admin- 
istered by the convicts themselves, who elect their own judges and 
make their own laws. In their jury trials a majority convict. The 
superintendent has a right to veto any measure. Lawbreakers are 
flogged or locked up, or, in extreme cases, sent back to Bilibid, this 
latter being regarded as the most severe punishment. 

The grounds are beautifully laid out and are adorned with orna- 
mental flowers and p'lants, all of the work being done by the colonists. 
The sanitary conditions are excellent. 

Many of the colonists who have passed certain grades of proba- 
tion have taken up land, upon which they reside and which the culti- 
vate ; and these men, if they wish, may bring their wives and families 
to live with them. Marriage also is permitted among the colonists. 
Six marriages had occurred during the preceding year, the women 
coming to the colony to live with their husbands. At the time of my 
visit there were about 42 women in the colony. 

Farming is done on shares. The superintendent receives half for 
the general funds and the other half belongs to the convict. The 
farming is done under the direction and control of the superintend- 
ent. Those living on farms report periodically at headquarters for 
inspection, and their farms also are regularly inspected. There are 
now about 149 separate holdings. 

There was a display of the products of the colony, showing a great 
variety of fruits, vegetables, and staples. It is the purpose so to 
develop the production as to make the colony the source of supply 
of food products for Bilibid Prison in Manila. Already it is sending 
some products there. 



SPECIAL REPOKTS ON THE PHILIPPINES. 115 

The colonists raise their own meat and substantially everything 
that they consume, and it is hoped that in time there will be a suffi- 
cient surplus to furnish the meat supply for Bilibid and also to con- 
tribute to the meat supply of the army. Now the main supply of 
meat to the Philippines comes from Australia. 

The success at Iwahig in raising beef cattle will tend to stimulate 
like efforts in other parts of the islands. There is no reason why, 
with the native grasses which grow in great abundance in some of the 
islands and are well adapted for beef cattle, that the islands should 
not in time be able to dispense with all importation of meat. The 
cattle at Iwahig are raised from native cows and Indian bulls. 

The colonists also maintain a fishery, which abundantly supplies 
all the inhabitants. 

As an illustration of the confidence reposed in them, the engineer 
of the boat upon which we went from Puerto Princesa to 'iwahig was 
under condemnation, and three of the four house servants of Super- 
intendent Lamb, one of them having charge of his children, were 
convicted murderers. He told me that he traveled constantly day 
and night, discharging the duties of his office, inspecting the most 
remote farms, and that he had never borne an arm since he had been 
on the island. 

The convicts may remain in the colony after they have been par- 
doned or have completed their sentence. Those remaining are sub- 
ject to its laws. 

PRISONS. 

I carefully inspected the prisons, examining all parts of them, at 
Manila and wherever I went, except at Zamboanga, and as to the one 
there I had a report that it was of an exceptionally high order in 
respect to cleanliness and sanitation. 

It gives me great pleasure to report that the cleanliness, sanitary 
provisions, ventilation, and food and its preparation are beyond 
criticism. The contrast between the prisons as conducted under 
Spanish and American administration presents one of the most strik- 
ing changes in the islands. 

In only one place did I see an objectionable condition, and that was 
in an addition that had been recently made without proper ventila- 
tion. Governor General Forbes has already taken the matter in 
hand and it will be rectified. This was at Iloilo. 

The prisons in the Philippines might well be taken as models of 
cleanliness by many of our cities and States. 

FINANCIAL CONDITION. 

The following table shows the condition of finances of the Phil- 
ippine government and that they are satisfactory. 

On May 31, 1910, the surplus to the credit of the insular govern- 
ment comprised the following items : 

Friar lands bond sinking fnnd $795, 27L 36 

Puhlic works and permanent inipi-ovenients bonds sinking fund__ 441,460. 47 
Unexpended premium, public works and permanent improve- 
ments bonds 4, 537. 60 

Due from Philippine Railway Co., account interest advanced 372, 466. 64 

Investments from appropriated surplus 283, 342. 24 

Assurance fund, act No. 496 24, Oil. 74 

Loan to city of Manila, account Luneta extension 25,000.00 

Moro Province account current L 20,081.99 



116 SPECIAL REPORTS ON THE PHILIPPINES. 

^^'ol■killg siu'plus : 

Cash $4, 733, 633. 95 

Aceoiiuts receivable -- 781, 240. 81 



Total 7, 481, 046. 80 

The gold standard fund on that date had a balance to its credit of 
$9,491,344.99. 

The total bonded indebtedness on May 31, 1910, was — 

Insular : 

Friar lands bonds $7,000,000.00 

Public works bonds 5,000,000.00 

City of Manila : 

Sewer and waterworks bonds 4,000,000.00 

Total -. 16, 000, 000. 00 

On July 31, 1910, of the 397,000 acres purchased with the proceeds 
of the friar lands bonds, 123,680 acres have been sold, but with de- 
ferred payments, so that the government had as yet received but a 
small part of the purchase price. The remainder, including muclj 
of the most valuable land, is still to be sold. 

AGRICULTURAL BANK. 

The good anticipated from the creation of the agricultural bank 
has not been realized. Owing to the delay in establishing title under 
the Torrens system, which is the basis of the credit to be extended by 
the bank, but few loans have been made. The capital is too small 
to bring about any substantial result. The fixed charges for admin- 
istering a bank with a capital of $500,000 are as great as they would 
be for one much larger. Unless the bank shall establish more agencies 
at central points where loans can be negotiated with the minimum 
of expense to borrowers, the utility of the bank will fail or will be 
confined to a comparatively small area. 

At a public hearing in Manila on September 1, 1910, Mr. Leocadio 
Joaquin thus presented the difficulties, some of which are, however, 
erroneous : 

We all Ivnow that the basis of every govei'iiujent is foiuided on a good condi- 
tion of agriculture and that the basis of evei-y country or people also rests on 
agriculture. Unfortunately, Mr. Secretary, for more than 10 years past the 
Philippines have been sighing and groaning under a frightful burden due to 
the deplorable condition of our agriculture. The representatives of the United 
States have sought the most practical means to find a cure for this condition of 
affairs, and as a remedy they have found the establishment of an agricultural 
bank. In theory tlie bank has had apparently a brilliant success, but in prac- 
tice it is really a dead letter. The agricultural bank has no branches in the 
provinces or municipalities. It makes its loans from the Manila headquarters. 
It has encountered many obstacles in reaching the agriculturist, so that It is 
impossible for him to secure any money from said bank, as an essential re- 
quisite, as an indispensable one, is the furnishing of a Torrens title to land, a 
title which has been made legal by the enactment of the land registration act. 
As this law was but recently enacted, most of our lands have not Torrens titles, 
but have titles that were derived from the Spanish Government or under Spanish 
law. At the present time ther(> are many difficulties in the way of obtaining a 
Torrens title. There are many minute requirements on the part of the bureau of 
lands relating to the making of plans. This is a requirement which paralyzes 
the work, as there are very few agriculturists who can get these plans. Before 
the enactment of a recent law, which regulates the practice of surveying in the 
islands, there were over a thousand surveyors who were duly qualified by 
colleges and institutions of learning as such. This law, which was enacted 
about two years ago, has disqualified all of these qualified surveyors who, as 



SPECIAL, REPORTS ON THE PHILIPPINES. 117 

1 liave already said, numbered over a thousand, and I can now assure your 
honor that there are probably not more than 100 qualified-hy-the-government 
surveyors at the present time in the islands. They ai'e the only persons who 
are competent to survey land, whose plans will be admitted by the court of land 
registration in the acquisition of Torrens titles. This, then, is the tirst ob- 
stacle that a man finds who is not in possession of a Torrens title, in tlie making 
of the plans, survey of the land, etc. 

In addition to the other obstacles that are put in the \\ay of the survey of 
Ihe land by the bureau of lands, this fact alone, this lack of surveyors, is of 
itself sufficient to make it impossible, or at least very difficult, for the agri- 
culturist to acquire a Ton-ens title. 

If all of these obstacles are obviated and a Torrens title is acquired, a land- 
owner in Surigao, for example, after making a trip of from S to 16 days 
in order to secure a loan from the agricultural bank in ^Manila, and after 
negotiating with the bank will be able to secure only one-tenth of the value of 
the property as a loan. That is to say, if the property is worth ?=10,000.^ he 
may secure a loan for ¥^1,000. As you can understand, a property owner who 
has property worth i*'10,000 <'an scarcely hope to find a remedy for his present 
condition by the loan of ?=1,000. Really, we do not understand why, the re- 
striction being so great as regards the amount of the loan that will be given 
with relation to the value of the property, there are so many other restrictions, 
if it is the purjiose of the liank to find a cure for the present conditions of 
affairs as regards agriculture. 

It is for this reason that scarcely one-tenth of the a'rable hinds of the Philip- 
pines are under cultivation. 

Delay has been occasioned by the inadequacy of skilled surveyors 
to survey lands for establishing titles. For this reason the work of 
makino- loans has proceded slowly. 

The bank was opened for business on October 1, 1908. Up to the 
30th day of June, 1910, the number of applications received from 
each Province was as follows: 



Ambos Camarines 25 

Albay 49 

Antique 2 

Bataan 1.3 

Batangas 3 

Benguet 1 

Bohol 2 

Bulacan 30 

Capiz _"__ 6 

Cagayan 3 

Cavite 5 

Cebu 2 

Ilocos Norte 5 

Ilocos Sur 10 

Iloilo 8 

Isabela 30 

Laguna 11 

Le.vte 1.5 

ftlanila city 4 



Misamis 22 

Mindoro 3 

Moro 4 

Nueva Ecija 34 

Nueva Vizcaya 2 

Negros Occidental 54 

Negros Oriental 4 

Palawan i 

Pampanga 21 

Pangasinan 71 

Rizal 11 

Samar 5 

Sorsogon 7 

Tarlac 88 

Tayabas 4 

Union 8 

Zam'bales 2 

Total 565 



Of the 565 applications, 453 were refused, principally on account 
of defective titles. 

The total amount loaned up to June 30, 1910, aggregated ?^284,450 
($142,225). The law limits the amount which can be loaned on prop- 
erty to 40 per cent of its value. 

An agency of the bank has been established at Zamboanga. 

RAILROADS. 

I personally inspected the following lines: Those of the Manila 
Railroad Co. from San Fabian to Camp 1, 12.23 miles ; from Dagu- 
pan to Manila, 122.15 miles ; and from Manila to Los Banos, 40 miles ; 

^ One peso, Philippine currency, is equivalent to 50 cents United States currency. 



118 SPECIAL REPORTS ON THE PHILIPPINES. 

of the Philippine Railway Co. from Cebu to Danao, and from Cebu 
to Carcar, a total of 60 miles, and from Iloilo to Capiz, 71 miles. 

All of them were well constructed and well maintained. The road- 
bed, ties, and bridges were in first-rate condition. I was particularly 
impressed by the effort being made by the management of the Philip- 
pine Railway Co. in Cebu and Panay to promote agricultural prog- 
ress along its lines. At every station there is an exhibit of the 
products, and instructions are published for the best methods of agri- 
culture. They have induced large planting of maguey upon lands 
not well adapted for other crops. A strong effort is being made to 
build up the agricultural industry in sections tributary to its lines, 
thus laying the foundation not only for its own prosperity but for 
that of the people. 

I was particularly impressed with the shops of the company at 
Iloilo, which are extensive and of a high order. The machinery is all 
modern. Except the foremen, the operatives are Filipinos. They 
show a high degree of industry and capacity for mechanical work. 
These shops represent a large part of the cost of the road and their 
construction account should be distributed over the road in estimating 
its cost per mile. 

The number of miles of road now in operation by the Philippine 
Railway Co. is 131 and that by the Manila Railroad Co. 362. 

The Philippine people take deep interest in railroad construction, 
appreciate the benefits therefrom, and are eager for extensions. At 
public meetings at Albay and Legaspi I was urged to bring about 
the speedy building of the road from Batangas through Lucena to 
Albay. 

The original contract with the Manila Railroad Co. did not call 
for any guaranty, but by a subsequent agreement the company is to 
construct some 150 miles of additional track and the Philippine gov- 
ernment is to guarantee interest on first-lien bonds of the lines south 
of Manila and also on the extension to BagT.iio, subject to the annual 
contingent liability fixed by Congress. 

The guaranteed system is to consist of the following lines, viz : 

8ottthern or guaranteed system. 

, Miles. 

Belt Line- 6. 

Manila-Batangas-Bauan 67). 8 

Port Line Batangas .9 

Spur Camp McGrath 1. 1 

Cavite Sliort Line and Naic extension 32. 7 

Calamba-Magdalena-Santa Oruz 30. 

Tanto Tomas-Lucena 39. 3 

East coast extension and connection between the line now under construc- 
tion in Tayabas Province and that in Ambos Camarines (estimated) 135.0 

Legf.spi-Neuva Gaceres 60. 7 

Nueva Caceres north 7. 

Pili-Lagonoy 3L 

Legaspi-Tabaco extension 19. 3 

Port Line Legaspi . 7 

Port Line Tabaco . 8 

Ligao east 4. 

Tabaco west 4. 

Camp No. 1-Baguio , 22.0 

New port connection, Manlhi ^ ^ 2.0 

Total length of guaranteed system in Luzon 464. 3 



SPECIAL REPORTS OlsT TPIE PHILIPPINES. 



119 



Construction is proceeding as rapidly as practicable. The survey 
is now in progress on the Benguet road. From such investigation as 
I was able to make, I am of the opinion that the road from Camp 
No. 1 to Baguio can be constructed on a route which will involve 
less expense than hitherto was contemplated. 

Bonds on which interest is guaranteed by the Philippine govern- 
ment have been issued as follows : 

By the Philippine Railway Co :_ $7, 835, 000 

By the Manibi Railroad Co 2,108,000 

All of the lines will probably in time become paying properties, but 
some of them must await very extensive development and increase 
of commerce, which they will promote. 

EXPORTS AND IMPORTS. 

The foreign business of the islands has greatly increased since 1907, 
notwithstanding the prostration suffered by the main industry, agri- 
culture, on account of the loss of work animals by rinderpest. By 
far the greatest increment has been during the last year, and this is 
directly due to the operation of the Payne bill. The prices for sugar 
and tobacco products have largely increased, and these industries 
are in a flourishing condition. The price of labor has also increased. 

If modern culture and machinery shall be introduced, thus insur- 
ing the maximum of crops and their yield of marketable products, 
the sugar industry will be yet more profitable and largely increased, 
and that without an increase of sugar acreage. A first-class plant of 
the most modern type is being erected upon the Mindoro estate. This 
will prove an object lesson and will lead to the abandonment of old 
methods and the waste incident to them. 

The following table shows the value of exports and imports for 
the years set out : 



Fiscal year. 


Imports. 


Exports. 


1903 - 


S25, 799, 290 
28, 786, Oe 3 
30, 918, 745 
27, 794, 482 
37,061,925 


$31, 918, 542 


1907. 




33, 721, 767 


1908 




32, 829, 816 


1909. 




31, 044, 458 


1910 .... 




39, 886, 852 









Since 1904 the balance of trade has been in favor of the Philippines. 

Value of imported commodities with proportion from the United States shoion 
separately, fiscal years 1909 and 1910. 



Commodities. 



1909 



Total. 



United 
States. 



1910 



Total. 



United 
States. 



Wh^at flour 

Cars, carriages, and other vehicles 

Cement 

Chemicals, drugs, and dyes 

Cotton, and manufactures of 

Fish and fish products, including shellfish 

Iron and steel, and manufactures of 

Leather, and manufactures of 

Meat and dairy products 

Oil, illuminating 

Painis, pigments, and colors 

Paper, and manufactures of 

Tobacco, and manufactures of 

Miscellaneous 

Total 



172, 322 
168, 520 
247, 425 
440, 207 
944, 978 
332, 710 
933, 032 
494, 138 
176, 943 
614, 334 
130, 941 
457, 543 
38,294 
643, 095 



.■5601, 947 

45, 652 

276 

106, 666 

590, 635 

86, 987 

818, 548 

354, 185 

221, 266 

386, 692 

18, 300 

120, 339 

2,211 

1,340,127 



$1, 534, 442 
331, 637 
416,815 
539, 743 

8, 522, 307 
612, 765 

3, 305, 695 
760, 463 

2, 377, 466 

1, 142, 250 

217, 039 

638, 833 

208, 475 

16, 453, 995 



$1, 098, 823 
197, 004 
103, 078 
193, 713 

2, 120, 587 
338, 631 

1, 970, 490 
575, 730 
333, 298 
942, 734 
91,823 
227, 951 
177, 627 

2, 404, 639 



27, 794, 482 



4, 693, 831 



37,061,925 



10,776,128 



120 SPECIAL REPORTS ON THE PHILIPPINES. 

HEALTH AND SANITATION. 

Progress in promoting better health conditions lias gone steadily 
on. Except for care in the use of water and uncooked vegetables 
and during the hot hours, life is pursued in Manila just as in the 
United States. 

The official census of 1903 showed the population of the city of 
Manila as 219,911. The health department census of 1910 gives the 
following population of the city of Manila : 

Americans 4, 174 

Filipinos 211, 8.39 

Spaniards 2, 364 

Otlier Europeans ? 644 

Chinese . 14. 093 

All others 1. 27.1 

Total 234, 409 

For the quarter ended June 30, 1910, the death rate among people 
thus classified was as follows (annual average per 1,000) : 

Americans 13. 88 

Filipinos 33.24 

Spaniards IS. 54 

Other Europeans 11. 91 

Chinese 16. 22 

All others lo. 46 

Average 31. 5') 

It is thus seen that the death rate of Americans and Europeans 
living in Manila compares favorably with the rate among such people 
in any of our American and European cities of equal size. The death 
rate among the Filipinos and oriental people living in Manila com- 
pares in a like favorable manner with the death rate among oriental 
people in any of the Asiatic cities. 

The large death rate among the Filipinos in Manila is still largely 
due to the great death rate among children under 3 years of age. 
Though much progress has been made in improving this condition, 
there yet remains a great deal to be done. A¥hile I was there an asso- 
ciation was formed to begin an active campaign against tuberculosis. 

During the period of my stay in the islands the general health con- 
ditions Avere good. In Pangasinan and other places cholera had pre- 
^ailed, but it had been almost entirelj^ stamped out when I went 
tiirough that province. Wherever artesian water is used this and 
other diseases of the stomach and bowels no longer prevail. 

The department of health is excellently administered. Some com- 
plaints were made to me, but on investigation I was satisfied that 
they were not well founded and that some of them arose from oppo- 
sition of medical men who had not adjusted themselves to the new 
order of things. 

The condition of our soldiers in the Philippines is good. The men 
appear healthy and vigorous. 

The following table shows a comparison between localities : 



SPECIAL EEPORTS ON THE PHILIPPINES. 



121 



Numerical view of the effect of disease and injury on United States troops serv- 
ing at Jiome and abroad in the year 1909, compared with corresponding data 
for the year J908, hy countries — Proportionate numbers per thousand. 



American troops (enlisted). 



Admitted. 



Discharged on surgeon's 
certificate of disability. 



Mean 
strength. 



United States . 



/1909. 

\1908. 

/1909. 
""'""^" (1908. 

Cuba /19°9- 

Philippine Islands jJgQg- 

Hawaii g9- 

fl909 
Army transports 1X908" 



Total. 



/1909. 

U908. 

Regular Army, American troops, 1899 
to 1908 



Total. 



57, 124 

46,316 

1,064 

1,015 

604 

4.694 

12,844 

11,971 

1,014 

255 

1,669 

1,155 



1,024.37 
1,148.59 
390.04 
419.70 I 
798.01 I 
1,201.75 I 
1,348.02 
1,439.65 I 
1,180.47 1 
1,282.35 ' 
644. 70 ' 
760.17 : 



Disease. 



821. 77 

921. 91 

281. 95 

270. 94 

672. 19 

949. 30 

1, 156. 49 

1,207.84 

839.25 

1,027.45 

599. 16 

716. 02 



74,319 
65,406 



1,062.99 
1,188.03 



865. 92 
962. 88 



65,500 I 1,596.65 ; 1,379.25 



Injury. Total 



202. 59 
226. 68 
108. 08 
148. 77 
125.83 
252. 45 
191. 53 
231. 81 
341. 22 
254. 90 
45.54 
44.16 



Dis- 
ease. 



18.87 
21.35 
4.36 
3.67 
3.31 
21.46 
11.43 
8.65 
13.80 
39.15 



17.01 
19.15 
.87 
2.75 
3.31 
20.83 
10.52 
6.84 
12.88 
35.59 




Injury. 



1.87 

2.21 

3.49 

.92 



.63 
.91 

1.81 
.92 

3.56 



1.64 
1.97 



American troops (en- 
listed). 



United States ^^^ 

^^^^^^ \1908 

C,in.„ /1909 

^^'^^ \1908 

Philippme Islands/Jg^g 

Hawaii qs 

Army transports. . l\gQ^ 



Total. 



/1909 
"11908 

Regular Army, American 
troops, 1899 to 1908 



Died. 



Total losses. 



Total. 



4.84 
5.35 
1.75 
9.17 
1.66 
4.63 
6.43 
9.31 
1.84 
7.12 
1.45 
8.31 



4.91 
6.13 



10.85 



e^se. jl^J'^^y- Total. 



2.97 
3.10 



2.75 
1.66 
2.53 
4.09 
5.03 

.92 
3.56 

.96 
7.48 



1.87 
2.25 
1.75 
6.42 

"i'io" 

2.35 

4.28 

.92 

3.56 



23.71 
26.70 

6.11 
12.84 

4.97 
26.09 
17.86 
17.96 
15.64 
46.27 

1.45 

8.31 



3.02 
3.48 



1.88 
2.65 



21.75 
24.62 



3. 50 34. IS 



F^fe. i^^j^^y- 



19.98 

22.24 

.87 

5.50 

4.97 

23.36 

14.61 

11.87 

13.80 

39.15 

.96 

7.48 



3.74 
4.46 
5.24 
7.34 



2.73 
3.26 
6.09 
1.84 
7.12 
.48 
.83 



18.22 
19.99 



27.79 



3.52 
4.62 



6.36 



Constantly 
noneffec- 
tive. 



39.70 
41.19 
16.22 
12.99 
29.59 
38.53 
52.27 
53.35 
52.56 
37.61 
30.97 
35. 75 



Days treated. 



Each 
soldier. 



41.48 
42.68 



14.49 
15.08 
5.92 
4.75 
10.80 
14.10 
19.19 
19.53 
19.18 
13.76 
11.30 
13.08 



Each 
case. 



14.15 
13.13 
15.18 
11.33 
13.54 
11.74 
14.24 
13.56 
16.25 
10.73 
17.53 
17.21 



15.14 
15.62 



14.24 
13.15 



The above table is from the report of the Surgeon General, United States Army, for 1910, and deaths 
occurring in the United States from disease contracted in the Philippines are credited to the station 
of the regiment to which the soldier belonged. 

COAL. 



The coal supply for the Philippines and ships coaling there come 
mainly from Japan and Australia. The only mines operated in the 
archipelago are on the island of Batan. The coal is comparativelj^ 
light and is inferior to that of Japan and Australia. It will not, 
except in emergency, be used by the Navy, as the zone of movement 
would be too limited on account of the proportion of bulk to the 
energy evolved. It has, however, been tried on the transport Dix, 
being used with fairly satisfactory results from Manila to Seattle. 
It will answer well for interisland transportation. The deposits have 
not been determined sufficiently by expert examination. A mine is 
being operated on the island by the East Batan Coal Co. at a cost of 



122 SPECIAL REPORTS OjST THE PHILIPPINES. 

approximately 40 cents gold per ton, not including the cost of ad- 
ministration nor interest on the investment. This coal is sold to the 
trade at $3.25 gold per ton, f. o. b, ship. 

I visited and examined carefully the mine and plant which has been 
operated by the War Department. As near as I could get the figures, 
the cost of actual operation was $3,400 a month and, excluding that 
part of the force there engaged in taking care of material in the old 
entries and storing property, is approximately $2,500 a month, and 
this is as low a figure as the operations can be carried on for with the 
present output. 

, The officer in charge informed me that the approximate cost is 
$10 a ton on board ship. This cost per ton can not be materiallj" 
reduced without further development of entries. While the general 
opinion seems to be that there is sufficient coal on the government 
property to warrant further development, there is no reliable evi- 
dence. It is largely a matter of conjecture. If such development 
could be carried on so that the total cost of production would not 
exceed the cost of coal to the government by purchase, I would feel 
justified in using the Army transportation fund which has hitherto 
been used for that purpose ; but, in view of the present actual cost and 
the problematic results of further attempts at development, I did 
not feel justified in continuing the work and directed it to be immedi- 
ately shut down. 

A topographical survey is now being made, with a view of getting 
data for expert examination. The cost of the plant there up to the 
present time to the government amounts to $379,640.59 and there 
has been used from the mine coal to the value of $85,000. There are 
valuable houses and much valuable machinery, much of which would 
be a loss if the work should be abandoned. On account of the vital 
importance to the islands of ascertaining definitely as to the coal 
supply and to the Army and Navy of having, especially in case of 
war, a supply near the scene of possible operations, and also in view 
of the expenditures that have been made, I recommend that compe- 
tent experts be employed to investigate the coal deposits on the gov- 
ernment lands at this point and elsewhere where there are outcrops or 
other indications of coal and that Congress be asked to make an 
appropriation for this purpose. 

HOTEL. 

Manila, one of the most attractive cities in the world, has not had 
its just share of travelers because it has not possessed those accom- 
modations demanded by the wealthier class who travel for pleasure. 
There is much to attract and interest in the Philippines. 

On the 1st day of September, 1910, a memorial tablet was placed 
for a first-class hotel upon the site designated by Mr. Burnham, and 
the building, modern in all of its features, will be pushed to a speedy 
completion. Knowing how largely foreign cities draw upon the 
capital of travelers, and what large benefits they derive from this 
source, the establishment of a first-class hostelry which can cater to 
the tasted of such people in a city which has for the lack of such 
accommodations repelled them, is an event of no small significance. 
The estimated cost of the building and furnishing is ^900,000, of 
which ^600,000 were loaned by the insular government upon bonds 
secured by mortgage. 



SPECIAL REPORTS O'S THE PHILIPPINES. 123 

HOSPITAL IN MANILA. 

The opening of the general hospital for patients took place while 
I was in Manila, and I had the pleasure of attending. The event 
justly attracted great attention. The buildings are handsome, com- 
modious, and constructed of stone and concrete upon the best modern 
type. The appointments are in every way up to date. Except in 
size it is, in all essentials, not in any way inferior to the best of such 
institutions constructed upon the most approved plans in America. 
Too much credit can not be given to Dr. Victor G. Heiser for the skill 
and knowledge with which he has directed this monumental work. 
It is an institution of which Manila can justly be proud, for it is a 
conspicuous exponent of its civic progress. 

FODDER. 

Attention was directed to this subject in your special report. No 
substantial results have been obtained in producing clover or alfalfa. 
Experiments have been made by the Agricultural Department in 
curing a native hay, but up to this time it has not been utilized by 
the Army. The cost of provender brought from the United States is 
enormous and constitutes a large part of the extra expense of main- 
taining our soldiers in the Philippines over that in the United States. 
The cost of delivering American haj^ at Camp Keithley is estimated 
to be in excess of $40 per ton. A horse ordinarily consumes 14 
pounds a day, which makes the cost about 28 cents per day. The cost 
of oats is proportionately high. I saw Army horses and mules at 
Jolo mainly sustained hj native produce. No effort should be spared 
to promote such culture as will supersede a large part of, if not all, 
importation of provender. This would result not only in a large 
saving in the Army expenses, but would add to the agricultural pros- 
perit}^ of the islands. I was so much impressed with the necessity of 
taking more vigorous steps than had hitherto been taken for such 
development that I appointed a board consisting of the secretarj^ of 
public instruction of the Philippine Islands, the director of agricul- 
ture of the Philippine Islands, one officer of the Quartermaster's De- 
partment, and two officers of the Cavalry arm of the United States 
Arm}'^, said officers to be designated by the commanding general of 
the Philippines Division, with instructions to investigate the subject 
of raising forage for horses and mules in the Philippines, and to de- 
vise and recommend plans for the economical production of forage 
for draft animals of the Army and other branches of the Govern- 
ment, with permission to said board to avail itself of the services of 
experts connected with the insular bureau of agriculture and other 
branches of the insular government and of the Philippines Division 
of the United States Army. 

At Camp Stotsenberg guinea grass is being used to some extent 
in lieu of the hay ration. 

AGRICULTURAL COLLEGE. 

A visit to the agiicultural college at Los Banos and an examination 
of the work it is doing and the care and success characterizing 
it give confidence that benefits will come from it to agriculture in 
the Philippines like those which have come in recent years from such 
institutions in America. Original investigations are being made as 



124 SPECIAL EEPORTS ON THE PHILIPPINES. 

to insects which are noxious to plant life, and already gratifying 
success has attended them. The beetle, which has been so destructive 
to the coconut trees, will be brought under control and great sums 
will thus be saved yearly to this large industry, upon which the li^dng 
of so many of the inhabitants depends. Much of this research work 
is being done by the students under the able direction of Edgar M. 
Ledyard. Experiments are being made in plants, seeds, and trees 
and their adaptations. Undoubtedly improvement in agricultural 
methods and an increase in yield from the propagation from selected 
seeds will follow. All the work, including that of farming, is done 
by students. The cost is so small as to bring the benefits of the 
institution within the means of those in moderate financial condition. 
It is popular and patronized by the wealthier classes who are inter- 
ested in agriculture. The idea has prevailed, and not without war- 
rant, that the Filipinos of the better class, on account of their training 
under Spanish ideals, contemn manual labor. A healthy change is 
becoming manifest. Here I saw working in the fields several sons of 
men of wealth, and they took great pride in their work. The insti- 
tution was opened in June, 1908. and now there are 90 students. 
Dr. Copeland has under him experts from America in the various 
lines of specialties in agriculture. 

The mainstay of the islands is, and doubtless always will be, 
agriculture. The want of iron, the character of timber, and the 
quality and limited supply of coal preclude the expectation that 
manufacturing will ever become a very prominent feature of indus- 
try. While broadly speaking this is true, yet capital can develop a 
great variety of profitable industries that will diversify the prod- 
ucts of the islands and give lucrative employment to many of the 
inhabitants. 

Copra and hemp, instead of being shipped in their crude form, 
from which the lowest profit is derived, should be manufactured in 
the islands. All of the copra is shipped in its raw state. Some 
hemp is made into cordage, but the amount is inconsiderable. The 
condition is very much the same as that which obtained in our 
Southern States when practically all of the cotton was shipped out 
to be manufactured. A vast change has come to the prosperity of 
those States since they have extensively developed home manufac- 
tures. Much of the profit which should accrue to the agriculturist 
in the islands is lost, owing to the want of proper care in preparing 
copra and hemp for market. The copra from Java brings a higher 
price by $8 per ton than that exported from the Philippines, owning 
to its better preparation for market. 

The bureau of agriculture is sending experts to the farmers to 
instruct them in better methods. 

Hemp-stripping machines which are regarded as successful are now 
being used in Davao, Albay, and Leyte. If they shall prove to be 
what is claimed for them, a great economy will follow in hemp pro- 
duction and better prices will be realized on account of the improve- 
ment in grade. The price of hemp has been low for the last two 
years. 

The prostration of agriculture in certain sections on account of the 
loss of carabao from rinderpest is gradually recovering. _ It is thought 
that in three or four years the normal condition in this respect will 
be restored. 



SPECIAL KEPOKTS ON THE PHILIPPINES. 



125 



The sugar planters in the southern islands have, on account of good 
crops and the rise in price in sugar owing to the Payne bill, been so 
prosperous that they are making large importations of carabao from 
China, and at the present rate of progress will be s,ufficiently 
supplied. 

Periodically the locust pest has inflicted serious losses upon the 
farmers. The bureau of agriculture has ascertained their breeding 
places and a systematic war of extermination is being successfully 
carried on. In this work the constabulary give valuable assistance. 
On the whole the agricultural condition is good. 

When the plans for transportation now contemplated are carried 
out, wider markets are opened, animal diseases and noxious insects 
are brought under control, land titles are settled so that farmers can 
avail themselves of their lands as a basis of credit, and the irrigation 
system now planned is completed, agriculture will be on a more sub- 
stantial basis and will not be subject to the prostrating conditions 
which hitherto have affected it. 

The following table gives a comparison of the fiscal years from 
1907 to 1910, inclusive : 



Articles. 



Hemp tons . 

Copra pounds . 

Sugar do . . . 

Tobacco, and manufactures of: 

Leaf do... 

Cigars thousands . 

All other 

Miscellaneous 



1907 



Quantities. 



112, 889 
108, 206, 130 
265,189,835 

29, 910, 788 
116,719 i 



Values. 



$21,085,081 
4,053,193 
3,934,460 

1,957,488 

1,051,621 

120, 085 

1,519,839 



1908 



Quantities. Values 



113, 999 

168,474,820 
334,464,646 

23, 187, 231 
117, 564 



33, 721, 767 



$17, 



311,808 
461,680 
664,666 

581, 741 
084,078 
48,727 
677, 116 



32,829.>'l(i 



Articles. 



Hemp tons . 

Copra poiuids . . 

Sugar do 

Tobacco, and manufactures of: 

Leaf do 

Cigars. thousands. . 

All other 

Miscellaneous 



1909 



Quantities. 



147, 621 
232, 728, 116 
247, 752, 186 

23,603,142 
116, 278 



Values. 



$15,833,577 
6, 657, 740 
4,373,338 

1,668,234 

1,083,702 

40, 317 

1,387,550 



31,044,458 



1910 



Quantities. Values 



168, 090 
256, 559, 997 
281,564,991 

21, 417, 722 
196,592 



$17, 

9; 

7, 

1, 

2, 



404, 922 
153,951 
040, 690 

598, 557 
973,630 
65, 308 
649, 794 



39,886,852 



THE GOVERNMENT OF THE PHILIPPINE ISLANDS. 

I heard while in the Philippines various criticisms of the insular 
administration. This was to have been expected and necessarily 
arises whei-e people are interested in and understand public affairs. 

It has been a source of satisfaction to me that, although full oppor- 
tunity has been given, charges of official dishonesty have been few. 
In my judgment, the administration in the Philippine Islands will 
compare favorably with that given either by the United States or by 
the several States in America, and I am of the opinion that more 
numerous complaints and of a more serious character are made in the 
United States than in the islands. 



126 SPECIAL REPORTS 0:S THE PHILIPPINES. 

I am satisfied and I believe that anyone who makes a careful study 
of the personnel of the Philippine government will feel that the 
United States has just reason to be proud of the government it has 
established in the Philippine Islands. 

I have confidence in the integrity and ability of the Governor 
General, who is giving his whole mind and heart to his work. 

RECOMMENDATIONS. 

(a) I beg to refer to what I have heretofore said with reference to 
the coal mines on the island of Batan, owned by the United States 
Government and operated by the Quartermaster's Department of the 
Army. I renew the recommendation that an appropriation of 
$250,000 be made for the exhaustive study and development of this 
property. This recommendation was submitted in the estimate of 
appropriations for the fiscal year 1910. 

(h) I renew the recommendation made in raj annual report as 
Secretary of War in 1909, that provision be made for the retirement 
of American civil employees kfter long and faithful service under 
the Philippine government. 

(c) On March 22, 1910, after a careful study of the recommenda- 
tions of the Philippine Commission and after conference with you, 
I recommended : 

First. That the limit of indebtedness which may be incurred by 
the Philippine government for public works and improvements be 
increased from $5,000,000 to $10,000,000. A bill providing for this 
has passed the Senate and has been favorably reported by the Com- 
mittee on Insular Affairs of the House of Representatives. I recom- 
mend that the passage of this bill be urged. 

Second. I repeated the recommendation made by you for the 
amendment of the mining laws in accordance with several recom- 
mendations of the Philippine Commission. A bill to make this 
recommendation effective was introduced in the Senate and was sub- 
sequently referred to a subcommittee of the Senate Committee on 
the Philippines. I recommend that this bill be given early consid- 
eration. 

Third. Following the recommendation of the Philippine Commis- 
sion, I recommended the enactment of legislation to enable certain 
classes of Filipinos now excluded and aliens to become " citizens of 
the Philippine Islands." A bill effecting this was introduced in the 
Senate but did not, in the form presented, meet the approval of the 
Committee on the Philippines. I recommend that this matter be 
given further consideration. 

Fourth. I also recommended certain amendments to the organic 
act to increase the amount of land which may be homesteaded and 
the amount which may be sold to individuals. I am, after further 
study, still of the opinion that the legislation in this regard recom- 
mended was conservative and wise, but, in view of the fact that there 
is to be an investigation of the general subject of the handling of 
the public lands of the Philippine Islands by a committee of the 
House of Representatives, I withhold any recommendation as to this 
matter pending the conclusion of said investigation. 

Respectfully submitted. 

J. M. Dickinson, 
Secretary of Wa7\ 

The President. 



APPENDIXES. 



127 



Appendix A. 

List of petitions submitted to the Secretary of War during his visit to the 
Philippines and of the petitioners. 



Petitioner. 



NEGEOS OCCIDENTAL. 

14 municipal councils 



4 municipal councils and provincial 
board. 

5 municipal councils 

3 municipal councils 

2 municipal councils 



4 municipal councils. 
2 municipal councils . 



1 municipal council. . 

2 municipal councils. 
1 municipal council. . 



1 municipal council. . 

1 municipal council. . 

2 municipal councils. 

3 municipal councils. 
1 municipal council. . 



Municipal council of Calumpit, Bula- 
can, Aug. 15, 1910. 



Subject. 



2 municipal councils 

Municipal council, Pontevedi'a, Aug. 1, 
1910. 

Same body, Aug. 16, 1910 

-P 
Provincial board 

Provincial board 

OTHER PROVINCES. 

Filomeno O.Zafra and 278 others, Min- 
glanilla, Cebu, Aug. 10, 1910. 



117376—19- 



Investigation of charges by Representative Martin. Sale of San 

Jose estate declared by them illegal. 
Immediate establishment railroad line in Negros Occidental. 

Establishment Filipino senate. 

lilipinization all public offices in islands. 

Congress formally declare intention to grant independence to 
Philippines, and not to retain, cede, or alienate any part thereof. 

Immediate independence all Philippine Islands. 

Discontinuance government Moro Province and establishment of 
civil government similar to that elsewhere in islands. 

Equalization of salaries in public offices as between Americans 
and Filipinos. 

That Secretary of War obtain from Congress a money prize for 
person discovering efficient remedy for cattle diseases in islands . 

That bureau of lands facilitate homesteading by preparing map 
of lands which may be homesteaded, and furnish copy to each 
municipality. 

Extend period of study of Filipino students in United States to 6 
years. 

That Congress extend term of office of all elective officials in 
islands to 4 years. 

Reduction of salaries and wages of government officials and em- 
ployees in Philippine Islands. 

Applauding work of Messrs. Legarda and Quezon in Congress. 

Removal of limitations on importation of sugar, tobacco, and 
other Philippine products into United States free of duty. 

Power to Philippine Legislature to enact laws regulating emigra- 
tion of labor from the islands. 

Protesting against sale of friar lands in large tracts and requesting 
abolition of customs tariff between United States and Philip- 
pines. 

Asking Secretary Dickinson to support Commissioner Quezon's 
recommendation to Congress for an elective senate and empow- 
ering the assembly to enact legislation restricting immigration. 

Authority for province to issue $500,000 in bonds, proceeds to be 
used for construction of public roads and bridges. 

Power of Philippine Legislature to legislate for entire Archipelago, 
including Moro Province. 



Right to make commercial treaties with foreign nations. 

Right to di'aw up their own constitution. 

An elective senate. 

Appointment of a Filipino Vice Governor General. One-half of 

secretaryships of executive departments. 
Greater representation on supreme court. 
Authority for assembly to legislate for Moro and non-Christian 

provinces. 
Power to assembly to investigate and censure, and impose upon 

administration policy of majority. 
Congress to fix area of friar lands that may be sold at same limit 

as that fixed for pubUc lands. 
Homestead law be not amended as to area. 
Appeals to United States Supreme Court in amounts of $12,500 

instead of $25,000, as at present. 
Law regulating emigration of laborers to foreign countries. 
Trial by jury. 

Independence as soon as possible. 
Creation of an elective senate. 

Appointment of a lilipino as Vice Governor General. 
Appointment of Filipinos to half or more of the secretaryships of 

executive departments. 
Greater Filipino representation on the supreme court. 
Extension of authority to the assembly to legislate for the Moro 

and other non-Christian provinces. 
Legislation by Congress restricting sale of friar lands to occupants, 

or if unoccupied, to Filipinos and corporations, and limiting 

area to that of public lands. 
Provisions of homestead law relating to area be not amended. 
Appeals to United States Supreme Court in amount of $12,500 

instead of $25,000, as at present. 
Power to assembly to enact legislation prohibiting, restricting, 

and favoring the immigration of laborers. 

129 



130 



SPECIAL REPORTS ON THE PHILIPPINES. 



Lint of petitions submitted to the Seeretanj of War during his visit to the 
Philippines and of the petitioners — Continued. 



Petitioner. 



Subject. 



OTHER PROVINCES— continued. 

Presidents of the various committees 
of Nacionalista Party of Iloilo, Aug. 
27, 1910. 

Municipal council, Cebu, Aug. 17, 1910 



Municipal council of Naga, Cebu, Aug. 
17, 1910. 

Municipal council of Cebu, Julj' 28,1910 



Mimicipal council, Cebu, Julj^ 28, 1910. 

T6mas Arejola, deputy from Ambos 
Camarines, Aug. 11, 1910, to Secre- 
tary of War. 

Municipal council of Talisay, Ambos 
Camarines, Aug. 6, 1910. 

Mass meeting of ueople of Capiz, Aug. 
23, 1910. 

Convention of municipal presidents of 

Pangasinan, Aug. 27, 1910. 
Convention of municipal presidents of 

Cavite, July 23, 1910. 

Mimicipal coxmcil, Sorsogon, July 21, 
1910. 



Municipal council, Dingle, Iloilo, Aug. 

24, 1910. 
Mimicipal presidents, Pangasinan 

Province, Aug. 27, 1910. 

Mimicipal council, Mulanay, Tayabas, 

Aug. 5, 1910. 
Municipal president, councilmen, and 

residents of Arevalo, Iloilo, Aug. 26, 

1910. 
Municipal council, Narvacan, Ilocos 

Sur, Aug. 1, 1910. 

Matias Hilado, delegate of the Nacion- 
alista Party, Negros Occidental, and 
Fernandez" Yanson and Salvador 
Laguda, representatives of the Na- 
tional Progresista Party in that prov- 
ince, to Secretary of War, Aug. 25, 
1910. 

Philippine Chamber of Commerce, 
Manila, Sept. 1, 1910. 



Province of Bulacan. 



Certain Christian inhabitants of the 
island of Mindoro. 



Immediate independence. 



That the resolution introduced in Congress by Senator Crane is 
in accord with sentiments of people of Naga, and provides that 
copy of this resolution be sent to Senator Crane and Secretary 
Dickinson. 

Indorsing resolutions adopted at mass meeting at Manila Opera 
House, May 22, 1910, protesting against sale of friar lands to the 
trusts 

Applauding Senator Crane for resolution calling for Philippine 
independence, and providing that a copy be forwarded to Sec- 
retary Dickinson. 

Expressing accord with action taken by Representatives Martin 
and Slayden regarding sale of friar lands. 

Requesting him to faithfully interpret to the Government the 
aspirations of the Filipino people for immediate independence 
and, preliminary thereto, the granting of an elective Senate. 

Immediate independence. 

Immediate independence, and, in lieu thereof, (1) power to make 
their own constitution, (2) an elective senate, (3) the Filipin- 
ization of the public service. 

Immediate independence. 

Protesting against sale of friar lands in amounts greater than 
1,024 hectares, and expressing accord with Representative 
Martin's action. 

Applauding Representative Martin for his resolution calling for 
investigation of friar land sales, and requesting Government to 
sell friar lands only to occupants, or if unoccupied, to Filipine 
individuals or corporations. 

Protesting against sale of friar lands to the trusts. 

Asking the Secretary to endeavor to obtain for the Philippine 

Islands and elective senate, to be purely Filipino, and trial by 

jury. 
Congratulating Senator Crane and Commissioner Quezon, and 

welcoming the Secretary. 
Suspension for one year of customs duty on rice imported from 

Saigon, or the reduction thereof on account of poor crop in 

islands this year. 
Applauding action of Representative Martin; and requesting that 

the Secretary report to the Government that sale of San Jose 

estate is illegal and should be aimulled. 
Requesting him to endeavor to obtain for the Filipinos greate 

participation in the more important affairs of their government 



Objects to rate and system of taxation and to the budget and 
burden of expense oif running the government. 

Complains of insufficient currency; of the miserable condition of 
agriculture through loss of work animals and insufficient capital 
that the government shipyards, machine shops, bureau of sup- 
ply, prison workshop, ice "and printing plants present an unfair 
competition to manufacture by individuals; that the govern- 
ment revenue cutters come into ( ompetition with coastwise 
vessels, which endangers the continuance of some navigation 
companies; of the difficulties and hardships experienced by 
tobacco factories and distilleries in conducting their business; 
and that the Filipino has little chance of success in competition 
with foreigners. 

Suggests the necessity of reducing the expenses of administration 
of'the government, and that the Filipino should be trained in 
commerce. 

Notwithstanding their aspiration for immediate iudependence, 
petition for an elective senate, independent of the judicial 
power, increase of provincial autonomy, restoration of municipal 
autonomy, reduction of tax on alcohol, and reduction of the 
budget. 

Protesting against the extension to that island of the regime for 
the government of non-Christian tribes. 



Note.— These petitions arc in the department and will be submitted to you or to Congress, if desired. 



Appendix B. 

Heakii\-gs Befoep: the Seceetary of Wak, Held ix Marble Hall. Ayunta- 
MiEXTO, Manila, on September 1. 1910. 

The public session was opened by tlie honorable the Secretary of War at 
10 o'clock a. m. The addresses were delivered in Spanish, interpreted by Mr. 
Rupert D. Pergusson, chief of the translating division, executive bureau, and 
reported stenographically. 

The Secretary of War. It has been erroneously stated that during my stay 
in this country I ^^-ould at all times be surrounded by public officials and by 
Americans who would' not allow me to hear the voice of the people. That is 
not true. In proof thereof, in my journey to the northern Provinces and in 
my recent journey to the southern Provinces, as well as during my stay in 
Manila. I have at all times endeavored to come in contact with the people 
without any official intermediary. In order to do so more efficiently I have 
accepted the hospitality of Filipino homes for some days, where persons 
desiring to do so were at liberty to visit me. 

I have always believed in a full and free discussion of public matters. My 
life work has been that of a la^vyer. and part of the time that of a ju<lge. 
Therefore the habit of my mind and training has led me to believe that htrge^ 
value is to be attached to a full and fair discussion of every question. Or 
great A^alue to a court is the presentation and argument of the questions whic'i 
it has to decide from the several points of view of the parties in interest, 
I have had a great many interviews and besides have had a great many papers 
presented to me of various characters, some of them referring to questions of 
administration and some referring to what I might denominate the reciprocal 
relations between the Philippine Islands and the Government of the United 
States. I have replied to most and before I finish I will reply to all of thes^ 
communications. 

As to those questions relating to administration, I shall put them in the way 
of investigation, and shall, as soon as my opportunities will permit, give them 
such attention as I think they deserve. In respect to those petitions and 
papers which refer to the existing relations between the Philippine Islands 
and the United States, I have to the authors of these papers stated, to some 
verbally and to others in writing, that I will bring them to the attention of 
those authorities in the United States which are invested with jurisdiction 
over those questions. 

In pursuance of this general purpose upon my part in coming here to learn 
what I can about those matters which affect the various interests here, I am 
at this public meeting for the purpose of listening to any representations which 
any of you gentlemen may desire to make. 

Mr. Leocadio Joaqltin. The Secretary of War has stated in the last para- 
graph of his address that he was disposed to hear any representations that 
might be made to him on this occasion. I wish to inquire of the Secretary of 
War if it is his purpose to hear only those persons who are able to show that 
they represent some element in the conununity or some party or some interest? 

The Secretary oe V\'ar. I can not undertake to decide whom a man represents 
and I shall treat everybody here on the same footing, and I shall accord equal 
rights to all. 

Mr. Joaquin. We are grateful for the courtesy of the honorable the Secretar,y 
of War in giving us the opportunity on this occasion of hearing all representa- 
tions or complaints as may be made at this time. 

As to the first question which I shall subiuit to the honorable the Secretary of 
War, the principal, ever-remaining and permanent question in this country is 
the question of agriculture. We all know that the basis of every government is 
founded on a good condition of agriculture and that the basis of every country 
or people also rests on agriculture. Unfortunately, Mr. Secretary, for more than 
10 j'ears past the Pliilippines have been sighing and groaning under a frightful 

lai 



132 SPECIAL EEPOETS ON THE PHILIPPINES. 

burden due to the deplorable condition of our agriculture. The representatives 
of the United States have sought the most practical means to find a cure for 
this condition of affairs, and as a remedy they have found the establishment 
of an agricultural bank. In theory, the bank has had apparently a brilliant 
success, but in practice it is really a dead letter. The agricultural bank has 
no branches in the Provinces or municipalities. It makes its loans from the 
Manila headquarters. It has encountered many obstacles in reaching the 
agriculturist, so that it is impossible for him to secure any money from said 
bank. As an essential requisite, as an indispensable one, is the furnishing of a 
Torrens title to land, a title which has been made legal by the enactment of the 
land registration act. As this law was but recently enacted, most of our lands 
have not Torrens titles, but have titles that were derived from the Spanish 
Government or under Spanish law. At the present time there are many diffi- 
culties in the way of obtaining a Torrens title. There are many minute re- 
quirements on the part of the bureau of lands relating to the making of plans. 
This is a requirement which paralyzes the work, as there ai-e very few agricul- 
turists who can get these plans. Before the enactment of a recent law, which 
regulates the practice of surveying in the islands, there were over 1,000 survey- 
ors who were duly qualified by coheges and institutions of learning as such. 
This law, which was enacted about two years ago, has disqualified all of these 
qualified surveyors, who, as I have already said, numbered over 1,000, and I can 
now assure your honor that there are probably not more than 100 qualifled-by- 
the-government surveyors at the present time in the islands. They are the only 
persons who are competent to survey land, whose plans will be admitted by the 
court of land registration in the acquisition of Torrens titles. This, then, is the 
first obstacle that a man finds who is not in possession of a Torrens title in the 
making of the plans, survey of the land, etc. 

In addition to the other obstacles that are put in the way of the survey of 
the land by the bureau of lands, this fact alone — this lack of surveyors — is of 
itself, sufficient to make it impossible, or at least very difficult, for the agricul- 
turist to acquire a Torrens title. 

If all of these obstacles are obviated and a Torrens title is acquired, a land- 
owner, in Surigao, for example, after making a trip of from eight to sixteen 
days in order to secure a loan from the agricultural bank in Manila, and after 
negotiating with the bank, will be able to secure only one-tenth of the value 
of the property as a loan. That is to say, if the property is worth ?=10,000 he 
may secure a loan for ?=1,000. As you can understand, a property owner who 
has property worth ?=10,000 can scarcely hope to find a remedy for his present 
condition by the loan of ?=1,000. Really, we do not understand why, the restric- 
tion being so great as regards the amount of the loan that will be given with 
relation to the value of the property, there are so many other restrictions, 
if it is the purpose of the bank to find a cure for the present condition of 
affairs as regards agriculture. 

It is for this reason that scarcely one-tenth of the arable lands of the 
Philippines are under cultivation and we must add to all this the burden of 
the land tax and another great difficulty which the property owner has to 
meet — the lack of money to buy cattle with and to improve his property. 
Such a landowner will probably default in the payment of the land tax owing 
to the fact that he has not enough money with which to pay the tax, and the 
logical and certain consequence of all this is— as has often been seen — that 
practically everybody's property in the end will be seized by the government 
and be sold for taxes. 

These are the principal obstacles that up to the present time our agricul- 
ture has found in the way of its development. When the country is sinking 
lower and lower into poverty, many property owners in the Provinces have 
recommended that the government of the Philippine Islands secure from the 
United States Government all of the capital necessary to establish branches 
of the agricultural bank in the Provinces and municipalities. Such branches 
should have all the necessary capital in proportion to the extent of rice land 
and agricultural land in each district. The advantages that according to many 
agriculturists would be derived from this method would be the facilities 
afforded to them in the matter of the applications for loans. 

The Seceetaey of War. Ask him what capital he thinks is necessary to 
accomplish what he has in mind for the whole Philippine Islands. 

Mr. Joaquin. The amount of the capital would be based upon the proportion 
of the arable and agricultural lands in each district and the data in regard 



SPECIAL. BEPORTS ON THE PHILIPPHsTES. 133 

to these can be easily secured from tlie provincial treasurers wlio have a 
list of all these properties as assessed for taxation. 

The Seceetaey of War. Ask him if he has in mind an idea of the total 
capital that would be necessary to carry out his views. 

Mr. Joaquin. That is a very difficult question to determine. It is a question 
of mathematics. 

The Secretary of War. Can you give it approximately? 

Mr. .ToAQUiN. About ten times as much as the present capital. (As the pres- 
ent capital of the agricultural bank is ^=1,000,000, this would mean a capital of 
?=10,000,000. ) The distribution of this capital among the provinces and mu- 
nicipalities by the general manager of the bank in Manila under the inspection 
of his deputies, who would be the provincial and municipal treasurers, would, 
we believe, solve the question, and I shall not dwell very much longer on this 
point. I wish to assure you that this is the principal evil. Any remedies that 
might be given to other bureaus or other departments of the government should 
be united together and be placed here. This remedy is as urgent for the agri- 
culture of the country as a cure would be for a man who is about to die for 
want of medicine. I have been over many of the provinces and I have found 
that there are very many fauiilies who are able to eat only one meal a day be- 
cause they have not got money or food to eat oftener. 

As a matter of secondary importance but as a corollary to the principal 
question, I shall take up the question of tax assessment on land, which is 
another factor which contributes to the principal evil that affects agriculture. 
I have demonstrated in the beginning of my address that the farmer without 
capital will in course of time be crushed, and that this property will be liable 
to seizure by the government and to be sold for taxes. Many farmers also rec- 
ommend that there be secured through the honorable Secretary of War a 
reform in the land tax in such a way that it will not fall upon the value of the 
land but upon the value of the products of the land, as it is not just or fair to 
punish the property owner who is unable to pay the tax on his land when he 
has no money with which to pay it ; nor is it fair that the tax should be upon 
the value of the land and not upon the value of the products. 

The Secretary of War. Ask him this— if he thinks that land that is unpro- 
ductive should not be taxed at all. 

Mr. Joaquin. Practically, in accordance with equity, it would appear not. 
The Secretary of War. Tell him that suppose a lot of rich men bought up 
to the extent that the law permits all the uncultivated land in the islands, then 
they would own and control them, and not contribute to the expenses of the gov- 
ernment. 

Mr. Joaquin. If the honorable Secertary of War will pardon me, I can not 
conceive of such a condition of affairs either in theory or in practice. 

The Secretary of War. Ask him if he can not conceive of men taking their 
money and buying land to the extent that the law permits? 
Mr. Joaquin. Yes, sir ; perfectly. 

The Secretary of War. Well, then, let him suppose that they hold those 
lands as an investment with a view to selling them. Ought they not to pay 
anything on them for sustaining the government? 

Mr. Joaquin. I do not think that the case could happen in practice, because a 
rich man when he buys land as an investment is not going to allow the land to 
become overgrown with brush and forest and yield him nothing. We have an 
example here recently of capitalists buying lands with the purpose of cultivating 
them. 

The Secretary of War. Tell him that some of the most immense fortunes that 
have been made in America have been made by rich men buying up land and 
waiting for the country to develop, and thus acquired fortunes of millions and 
millions of dollars in that way, and if they do not contribute to the expenses of 
Government on these lands it would be an injustice to the people who bear this 
burden. 

Mr. Joaquin. I fully agree with the Secretary of War that such things have 
happened in America, but that would be impossible where the same conditions do 
not prevail. This country is not developed as is the United States. Where in- 
dividuals have bought large tracts of land in the Philippines for the purpose of 
holding them as an investment, they have found at the end of the first year that 
much of the land they have bought is in forests and has depreciated in value 
about one-third, and at the end of the second year that it has depreciated one- 
half, and if allowed to go without cultivation altogether that it has become prac- 
tically valueless. 



134 SPECIAL REPORTS OlST THE PHILIPPINES. 

Tlie Secretary of War. Suppose they buy lauds in their primitive state and 
hold them free from taxation. There can not be any depreciation in price. 

Mr. Joaquin. Of course, if the lauds bought are arable land they would 
quickly depreciate in value on account of the excessive and exuberant tropical 
growth, which would convert them into forests in a very short time. 

The Secretary of War. Suppose they are already forest when bought. Are 
those lands to be held without taxation? 

Mr. Joaquin. Here in the Philippine Islands as forest lands are Government 
lands they are not as a general rule the objects of purchase and sale. 

The Secretary of War. Ask him wouldn't they be the object of purchase if a 
man could hold them without being taxed on them? 

Mr. Joaquin. Forest land would yield him nothing, and he would not be able 
to dispose of it as forest land. There is no market for forest lands. 

The Secretary of War. Tell him I just wanted to get his view. I understand 
-what his opinion is. Tell him to proceed. 

Mr. Joaquin. Let us admit hypothetically the supposition put by the honorable 
Secretary of War. If a law were to be enacted making taxation on the net pro- 
ceeds from the products of lands and then some rich man wished to take advan- 
tage of the situation by purchasing the land and holding it, with the object of 
defrauding the Government, I believe that in that event the law might be 
amended to suit such cases. In such cases there might be given such extension 
•of time within which it might be obligatory upon the owner to cultivate the land 
if it were possible for him to do so. Certainly no man can be compelled to do 
what is impossible. If he failed to comply with this condition of placing his 
land under cultivation, and thus making it subject to taxation within the time 
specified by law, then he might be adjudged as maliciously designing to defraud 
the Government. The government of the Philippine Islands has had a practical 
view of my contention and has fallen in with my view by having exempted cer- 
tain provinces where the crops were bad from the payment of the land tax 
during several successive seasons. I finish now the principal question, which I 
believe the Secretary of War thoroughly understands and that he fully realizes 
what is needed for the country. 
I pass on to the second subject. 

It has been observed in practice that there is a great lack of lawyers in the 
courts of justice. During the Spanish Government there was a certain number 
■of attorneys who were paid by the Government to devote their services free 
to poor clients. 

The Secretary of War. Ask him does he mean in civil as well as criminal 
■cases. 

Mr. Joaquin. It was obligatory ; it was compulsory in criminal cases, but not 
in civil cases, but they acted in civil cases also. 

The Secretary of War. Ask him if in the courts here if a man is not able to 
employ counsel the courts do not assign lawyers to do it. 

Mr. Joaquin. Yes, sir. That is the practice, and it is a bad practice, to be 
sure. 

The Secretary of War. Tell him that is the practice that obtains everywhere 
in America. The lawyer is a sworn officer of the court, and he is bound to 
defend without charge any person not able to defend himself, if appointed by 
the court to do so. 

Mr. Joaquin. That practice has been followed here ever since the establish- 
ment of American Government, but the results are deficient in practice. 
The Secretary of War. Ask him to state how. 

Mr. Joaquin. The Secretary of War will agree with me that to human kind 
the chief incentive is money in every effort. Every effort that a man makes he 
does with the incentive of money. 

The Secretary of War. Tell him I do not agree with him on that proposition 
at all. If I did, I would not be here as Secretary of War, because I can make 
more money in other ways. ' 

Mr. Joaquin. I refer to professional cases. I say this because we have seen 
it in practice. For example, we have a trial of a criminal case and the defend- 
ant appears before the court. He is a poor man, and asks the court to appoint 
a counsel for him ; and the court, who has not any lawyers to choose from as a 
general rule, will look around and see if there happens to be a lawyer in the 
court room, and the very first lawyer who happens to be in the court room is 
generally selected by the court to defend the unhappy man. The trial is imme- 
diately proceeded with. Now, the prosecuting attorney, who has probably pre- 



SPECIAL REPORTS ON THE PHILIPPINES. 135 

pared his case a month before, has very much the best of it over the lawyer for 
the defendant who was just brought into the case at that very moment. 
The Secketaey of War. Ask him what is his X'emedy. 

Mr. Joaquin. I would recommend that the old Spanish practice be adhered 
to. Under the Spanish form of government a lawyer was appointed de oficio to 
defend all poor defendants in criminal cases and he was paid a salary just as 
well as the district prosecuting attorney. I do not find that it is just and fair 
that a government should maintain an office for the prosecution of crime and at 
the same time maintain no establishment for the defense of poor defendants in 
criminal cases. 

It is very necessary that the Government should take some steps t^j i*emedy 
this condition of affairs. When the vice governor made a visit to one of the 
Provinces some months ago he found a number of prisoners who had been in 
jail for over, eight months. Their cases had not been disposed of, had not been 
brought to trial, and it was chiefly owing to the lack of some lawyer to defend 
them. 

The Seceetaey of War. Tell him if the court went on with its session and 
appointed lawyers to defend them the delays would not happen because there 
were no lawyers, but because the court was not doing its duty and trying the 
cases before it. 

Mr. Joaquin. The chief difficulty is in the organization of the courts. We 
have district courts so that a judge will hold sessions only once every three 
months in his court in one district and very often prisoners are not brought to 
trial for several months because the judge can not get around to it. 

The Secretary of War. Then the trouble is on account of the courts and not 
on account of not having regular salaried attorneys. 

Mr. Joaquin. The chief difficulty is the want of a person appointed by the 
government to look after these poor cases, who will take an interest in each 
case and make the necessary preliminary investigation. The court is very 
much occupied all the time, and the delay in these cases is due to the fact that 
they are not brought to the attention of the court and disposed of, while other 
matters are. 

The Secretary of War. Tell him, suppose the court was not in session. Tell 
him also to proceed. I do not want to curtail his remarks, but I want to give 
others an opportunity to speak. 

Mr. Joaquin. You are thoroughly informed on that point. The difficulty is 
due to the lack of lawyers de oficio. Such an attorney should have power to 
investigate the conditions of each case — each of these " pobre " (poor) cases — 
and bring them up before the court. It is as just that this should be as it is to 
have a prosecuting attorney's office, which is well paid by the government. 
There should be another office of attorneys, called " defenders of the poor," to 
investigate all such cases and bring them up before the court. 

This question is the last. It is very arduous. It is really not incumbent upon 
me to bring it up, as I am only an individual. However, I have taken it upon 
myself to bring it to your attention because it is the subject of general com- 
plaint. We are dealing with the question of the Filipinization of the service. 
The truth must be told. The Filipinos employed at the present time who have 
had more than 10 years of experience are not justly compensated for their 
work. I shall not go into details, but I will say that it is a grievance on the 
part of the Filipino employees. All the Presidents of the United States have 
had as a motto for the Philippine Islands " The establishment of a govern- 
ment by Filipinos aided and taught by Americans." After the visits that I 
have made into the provinces and the different departments of the government, 
I have become personally convinced of the justice and necessity of the equality 
before the law between native and foreign government employees. I wish that 
the Secretary would have it in mind that I take this matter up in representa- . 
tion of the employees. 

We have all great confidence in the great American nation and that all of its 
good purposes for the Filipinos will be successfully carried out, if not at a 
very early time, at least in due time. One of the great purposes that the 
worthy ex-Presidents of the United States have announced with respect to the 
Philippines and one that had been put into the Philippine bill is the complete 
Filipinization of the government service. 

If the honorable Secretary of War thinks that the hour has arrived for this 

to take place 

The Secretary of War. For what to take place? 



136 SPECIAL, REPORTS ON THE PHILIPPINES. 

Mr. Joaquin. The Filipinization of the service. I thank the honorable Sec- 
retary of War very much for his liindness in hearing nay impertinent repre- 
sentations. 

The Seceetaky of Wae. Tell him I do not regard them as impertinent at all, 
but very relevant. 

Mr. Joaquin. I thank you and I trust that taking into consideration ,your 
well-known democratic sentiments you will be a faithful interpreter of all the 
representations that have been made to you by the different persons during 
the time that you have been in the Philippines. . 

We desire you a happy voyage and that you will grant our petitions, if you 
deem them fair and just. 

Mr. L. Gonzalez Liquete, of the newspaper La Vanguardia, was the next 
speaker. 

Mr. Liquete. I wish to state in the first place that I have not come prepared 
to speak. I am a newspaper man. I simply came here to get the news of this 
transcendental event, but as I have seen that none of the persons who devote 
themselves to politics has come forward to-day to give expression to his opin- 
ions, I should like to fill this vacuum by making a few remarks. 

The Secretary of War. I shall be glad to hear you. 

Mr. Liquete. I should, in the first place, like to express my adherence and 
support to everything that has been said by Mr. Leocadio Joaquin with respect 
to the Filipinization of the service. Mr. Joaquin has spoken in general terms. 
He has referred to the principles of the policy of America toward the Philip- 
pines respecting the insular administration. I should like to bring to the 
attention of the Secretary of War certain data which will prove that the prin- 
ciples and the promises that have been so repeatedly and so solemnly made by 
the Governors General, both in documents and in speeches — I should like to 
prove, I repeat, that these promises and principles are very far from being 
realized. I have read very carefully the reports of the Governors General, 
of the Chief of the Bureau of Insular Affairs, and of the Philippine Commission, 
and in the last report of the Governor General I have found something that 
might pass for an explanation regarding the difficulties in the way of the Fili- 
pinization of the service. This part of the Governor General's report says 
that one of the difficulties has been principally the lack of technical men among 
the Filipinos to do the work in connnection with engineering and public works. 
This affirmation, of course, is true as regards technical Filipinos in engineering, 
but I do not think this is a reason sufficiently powerful to explain the conserva- 
tive policy of the insular administration regarding the participaton that the 
Filipinos ought to have in the administration of the Philippines. I under- 
stand that what is called the Filipinization — that is to say, the advisability 
and the necessity and the justice of giving the Filipinos a larger participation 
in the administration of the Philippines^ — would be a great advantage from 
a moral standpoint as well as from an economical standpoint. We have, for 
example, the bureau of health. In this bureau we have some technical Filipinos, 
who could occupy with great advantage to the service the highest offices in that 
bureau. We have the constabulary. Nearly all the steamers coming from 
America bring third lieutenants for the constabularly. I do not see any 
objection, and there are many advantages in having the said third lieutenants 
who come from the United States supplanted by Filipinos. I understand that 
these third lieutenants who come from America have been very carefully 
selected from among young men who have graduated from military colleges, 
but these gentlemen are not subjected to the examination that the Filipinos 
who aspire to the same rank have to pass here in the Philippines. This same 
careful selection might be made from among young men who graduate from 
the schools of the government here, and a preparatory school might be created 
for constabulary officers. The organization of the constabulary in the Philip- 
pines had for its purpose the creation of a national militia force which should 
be responsible for the preservation of public order, in such manner that when 
first organized the constabulary was composed in each Province of men who 
enlisted in that Province, where they were residents. A reform that would 
restore the confidence of many people who are doubtful of the good purpose of 
the United States would be to make the constabulary a national organization, a 
really Filipino organization, responsible for the preservation of public order. 

With respect to other departments of the administration, the same thing 
miglit be said with respect to clerkships. The Filipinos are just as efficient 
up to a certain point as the Americans are. and the cmidoyment of Filipinos 
would mean a great reduction in tlie appropriations. 



SPECIAL REPORTS ON THE PHILIPPINES. 137 

If you will permit me. I would like to deal with other matters also. I should 
like to touch on the question of the friar lands. In order fully to understand 
public sentiment on this matter, I believe it is necessary to remind you of the 
motives that led Mr. Taft to negotiate for the acquisition of these lands. 
These motives were fully explained by Mr. Taft in his special report made when 
Secretary of War. He there says that it was a great question affecting public 
order. He considered the question of the purchase of the friar lands as a 
question of state. He has repeated this very often — whenever he has touched 
upon the subject in his reports — and he has also repeated it many times at 
popular demonstrations that have been made in these islands against the re- 
tention of the friars in the Philippines. It is my opinion that the purchase of 
large areas of the friar lands by various interests is a trampling upon vested 
rights, rights that have been created by, and, belong to, the former tenants of 
the friar estates. 

The Seceetaey of Wae. Do you know of the purchase of any large quantity 
of land where the rights of former tenants have been disregarded ? 

Mr. LiQUETE. Yes, sir ; the Calamba estate. . 

The Seceetaey of W^ve. Can you give me a list of the names of any men wdio 
were tenants and who were willing to buy and have not been permitted to buy 
and Iiave been dispossessed by the purchasers of any such large area of land? 
I would like to have a list of the names of such persons. You may furnish it 
at anj^ time convenient. It will be attached as an exhibit to your remarks. 

(Mr. Liquete stated that he w^ould do everything possible to get such a list.) 

The Seceetaey of Wae. That is contrary to my present information and I 
would like to have the details. 

(Mr. Liquete explained that he did not mean to say that any acts had been 
consummated already that have infringed the rights of the tenants of the friar 
estates, but that there is a decision of the Attorney General of the United 
States with respect to the sale of friar lands which can lead up to a result which 
will be tantamount to that.) 

The Seceetaey of Wae. The law fully protects persons in posse.ssion, and 
the Attorney General's opinion has no bearing on that question. So far as I 
know^ every person who is in possession of the friar lands has had an oppor- 
tunity to buy, and that so far as I know no one who was in possession has been 
dispossessed, as no one has bought lands so possessed, and if you have any in- 
formation of that sort I would like to have it. 

(Mr. Liquete thought that he could supply some data with reference to the 
subject. ) 

The Seceetaey of Wae. I am very anxious to have it. 

Mr. Liqtjete. Some of the tenants who have been occupying the lands, in 
person and through inheritance, for a length of time have been unable to 
purchase them, though they have not as yet been dispossessed. They would in 
case that the lands were sold be dispossessed. 

The Seceetaey of Waii. Does the gentleman know of any step that has been 
taken — any sale — which would dispossess these people? I know of no such 
thing, and if he has any information to that effect I should like to have it. 

Mr. Liqtjete. Very well, sir. I have nothing more to say, except to thank 
you very much. 

(Mr. Liquete stated over the telephone on Sept. 2, 1910, that when he had 
gathered the data promised the Secretary of War he would forward it to 
him through the executive bureau. He, however, did not submit the data, and 
on return to Washington the Secretary inquired by cable and found that it 
had not been submitted.) 

Mr. LoEENzo Tatlong Neki. I desire to speak in the name of and on behalf 
of my town, Santa Rosa, La Laguna. The Secretary of War passed through 
that town yesterday. 

The Seceetaey of Wae. Are you an official? 

Mr. Neei. No, sir ; but I wish to speak because I think that the matter I 
have to present to the Secretary of War lies within his jurisdiction. 

The Seceetaey of War. When* he said he speaks on behalf of the town I 
wanted to know whether he was speaking as -a volunteer, as a committee, or 
in an official capacity. I shall be very much pleased to hear whatever he has 
to say, even as an individual. 

Mr. Neei. In the month of ,Iune there was a popular assembly held in my 
" pueblo," and I was then appointed as one of the representatives to the 
national assembly, or, rather, convention, wiiich it was sought to hold here 
in ilanila in the presence of the Secretary of War. This is a question which 



138 SPECIAL, REPORTS ON THE PHILIPPINES. 

lias to do with approximately some 200,000 hectares of land. These 200.000 
hectares were excluded from the sale of the friar lands made by the Philip- 
pines Sugar Estates Development Co. 

Tlie Secbetaki'- of Wae. Did he say " excluded " or " included "? 

Mr. Neei. They were excluded from the sale made by the Philippines Sugar 
Estates Development Co. 

The Seceetaey of War. Who is that? 

Mr. Feegusson. That was one of the selling companies to the Government. 
■ The Seceetaey of Wak. Ask him who owns these 200,000 hectares. 

Mr. Neei. A great many owners. 

The Seceetaey of AVae. The government did not buy it? 

Mr. Neei. No, sir. They were excluded from the land which was sold with the 
friar estates. The purpose of the government in buying the lands of the friar 
estates was to give facilities to the tenants for acquiring the proper title to 
such lands. 

The Seceetaey of Wae. That was one of purposes but not all. Tell him I do 
not understand it that way. It was to get the friars away from here. 

Mr. Neei. Yes, sir. That is true. 

The Seceetaey of Wae. And that was the main one? 

Mr. Neei. Yes, sir. Now these lands which were excluded from the sale you 
Avill understand have been held for many years past by the present owners, but 
to-day it appears that the tenants are liable to be deprived of their rights. 

The Seceetaey of Wae. By whom? 

Mr. Neei. By the Philippines Sugar Estates Development Co. 

The Seceetaei' of Wae. Is that a friar estates company? Who is that? 

Mr. Feeguson. There are several companies* here and the friars sold out to 
them. They were organized 

Mr. Neei. About a month ago the president of the Philippines Sugar Estates 
Development Co. wrote to all of the tenants on these lands who are actually 
on the land, who now occupy the land, saying that the company is ready to 
start to cultivate the lands on its own account and for its own benefit, so that it 
appears that the company seeks to deprive the tenants of the possession of the 
land. 

The Seceetaey of Wae. That is a legal question, is it not? 

Mr. Neei. Yes, sir. 

The Seceetaey or Wae. Why don't the people interested get together and 
employ a lawyer and have him take up and bring it into the courts to protect 
their rights? 

Mr. Neei. The reason is that the company to-day has absolute property rights 
over this land. 

The Seceetaey of Wae. If they have absolute property rights over the land 
what does he think I can do? 

Mr. Neei. We simply wish to state that it might be possible for you to use 
your influence in favor of these people and secure from the Congress of the 
United States authority for the purchase of these lands by the government in 
order that the government may then sell the lands back to the tenants as they 
did in the case of the friar lands. 

The Seceetaey of Wae. Ask him if the friars have anything to do now with 
these lands. 

Mr. Neei. I believe that the present Philippines Sugar Estates Development 
Co. is the same company that sold the friar lands' to the government. 

The Seceetaey of Wae. Ask him if they have ever taken this matter up with 
the Governor General. Have they ever called this matter to his attention and 
asked him to investigate it and, find out what the status is? If not, I think 
that is what they ought to do. Tell him I think that is the proper way to pro- 
ceed, to initiate it anyway. 

Mr. Neei. I thought I would avail myself of this opportunity in the under- 
standing that you were here ready to listen to any complaints. 

The Seceetaey of Wae. Tell him I am very willing to listen, but it seems to 
me that is the most practical way to proceed. 

Mr. Neei. We are quite -ready to do that, and we thank you very much. As 
you are going to the United States very soon and as Congress will meet very 
soon, and Congress must be called upon to give authority to purchase this land, 
I thought I would bring it to your attention so that you might bring it to the 
attention of Congress. 

The Seceetaey of War. Tell him I could not do anything merely on his 
verbal statement, and I think there ought to be an investigation and some 



SPECIAL REPORTS OlST THE PHILIPPINES. 139 

authentic facts and papers to lay before Congress, and I have no doubt it will 
give the matter proper consideration. 

Mr. MoNTENEGEo Reyes. It will be a crime for us not to comply with the 
exigencies of this occasion. We understand perfectly that the honorable Secre- 
tarj^-of War in an administrative way is the most distinguished personage that 
has visited these islands, because he is practically what we might call the ad- 
ministrative head of our government ; and as his recommendations may result 
in a variety of benefits to this country, I do not wish to allow this opportunity 
to pass by without taking advantage of it at the same time I have the pleasure 
of speaking face to face with the highest representative of the Sovereign Gov- 
ernment. The nobility of the soldier, such as I am, demands that I should talk 
with clearness and frankness, and to say that my people want immediate inde- 
pendence. [Applause.] 

The Seceetaey of Wae. Ask him what he means by " immediate independ- 
ence"? 

Mr. Reyes. We mean to say that we want to have independence under the 
protection of America, and right now — to-day, if possible. 

The Secretary oe War. Tell him there is no probability of that either to- 
day or in the immediate future. Tell him he has spoken frankly and I would 
not be just with him if I did not also speak frankly to him. 

Mr. Reyes. I thank you, Mr. Secretary, from the bottom of my soul that you 
have spoken so frankly 

The Secretary of War. Tell him I never speak any other way. 

Mr. Reyes. But I wish to make a representation to the honorable Secretary 
of War that will .justly interpret the desires of my people. 

The Secretary of War. Tell him I will be very glad to hear his statement 
and shall also be very glad to make same known to the President and to 
Congress. 

Mr. Reyes. I thank you very much personally and on the part of the majorit.v 
of the people for the honor which you have done us. I should like to enter 
upon another very important question if the Chair will kindly grant me a few 
minutes more. 

The Seceetaey of War. Certainly. 

Mr. Reyes. We have spoken here on agriculture. The wealth of the Filipino 
people lies in their agriculture. Some people have said that the Filipinos do 
not want to Avork. but I think that the reason that the Filipino does not work 
is because he is a colonist, a dependent — he is not working for himself. 

The Secretary or War. Ask him whom he is working for. 

Mr. Reyes. Considering the conditions of the Filipino people and the fact 
that they are colonists 

The Secretary of War. Ask him if anybody else is getting the results of 
their labor except themselves. 

Mr. Reyes. I am simply making a premise. This matter involves a question 
upon which your influence, moral and otherwise, will be of great benefit to the 
people. I am referring to certain legislation here — such, for example, as the 
" bandolerismo " act, the brigandage act, a very severe law. The provisions of 
that law are so very strict that the Filipino fears to go out into the field and 
work. The Filipino looks upon this law as a sword of Damocles hanging over 
his head. 

The Secret AEY of War. Ask him what parts of this country his remarks ap- 
ply to when he says that they are afraid to go out and work in their fields. I 
want to know what section of the country he refers to. I want to inquire into 
these conditions and remedy them if I can. 

Mr. Reyes. I wish to cite the facts first 

The Secretary of War. No ; I want him first to specify the facts. He has 
stated it as a fact, and now I want him to specify. 

Mr. Reyes. Not very long ago, in a province the name of which I have for- 
gotten, a gentleman, who is very well known here, was accused of bandolerismo 
or brigandage. , 

The Secretary of War. Tell him he is getting away from the point. He is 
not answering my question. He stated that there were places in this country 
where the Filipinos were afraid to go out and work on account of that law. 
and I asked hiui where those places are, because I want to know the facts and 
I want to investigate them, and I want liim to give the specific places. 

Mr. Reyes. I will explain some facts to you that will justify me in making 
that remark. A farmer, who has a little bit of capital and sufficient energy and 
means to cultivate his land goes out to his estate, which is, as a general rule, 



140 SPECIAL REPORTS ON THE PHILIPPINES. 

two or three or more kilometers from the center of the town. There he lias no 
personal security, because there is no constabulary there, so that there is no 
security to the person. A few hungry people go there to his estate and make a 
demand on the property owner for some rice, and it is quite natural for this 
man, this property owner, either prompted by feelings of humanity or through 
intimidation, to yield to such demands. The law does not compel this man to 
find out whether these people are really brigands or not, although morally it 
may be incumbent upon him to find out whether they are brigands or not 
before giving him the rice. If he does give even 2 cavans or measures of 
rice, which he is giving in perfect good faith and with good intentions, he 
is, under the law, a bandit and he is prosecuted as such. Now, then, I have 
a good deal of confidence in the courts of justice as organized to-day and 
the men at the head of them as men of integrity. Now, this man who has 
been accused of brigandage, if he is not hanged, will get 20 years' imprison- 
ment, or even if he is acquitted, the amount of money he expends in defend- 
ing himself is lost entirely. Nobody pays it back to him. It is this con- 
dition of affairs that keeps the people from working their lands. They might 
go out and work their land and at the end of the year make ?=5,000, but on the 
other hand, they might be brought under the operations of the brigandage law 
and lose ?=10,000, if they do not go to jail. In view of the fact that there is no 
war or brigandage or disturbance of public order^we are all at peace in these 
islands here now — I am of the opinion that the remedy can be found in the 
amendment of this act, and I ask you to use your influence with the commission, 
in order that it will pass a bill amending or repealing the " bandolerismo " 
act when brought up by the assembly. 

The Secretaey of Wab. Now tell him I want him to answer my question, 
which he has not answered. He says that at the present time in certain places 
the condition of affairs is such that a man is afraid to go out into his field 
and work on account of the operations of this law. 

Mr. Reyes. That is true, but that condition of affairs does not prevail in the 
provinces near Manila. However, it is not very long since that a millionaire 
property owner, Mr. Pedro Roxas, was brought under the operation of the 
" bandolerismo " act in the Province of Batangas. 

The Secketaey of Wae. Ask him if he goes out into the field to work. 

Mr. Reyes. According to the newspapers he was out on his estate superin- 
tending the work. 

The Seceetaey of Wae. He said that the people were afraid to go out and 
work their lands. 

Mr. Reyes. What I meant to say was going out on their estates and working 
their lands. 

The Seceetaey of Wae (to Mr. Fergusson). You said "work in the fields." 
Now ask him if he knows of an instance now in any part of these islands where 
people are ever afraid to go out upon their lands to superintend them or are 
afraid to go out upon their lands and actually work them, and if so, please 
state what part it is. I want the facts to investigate them. 

Mr. Reyes. Actually at the present time I can not point to any particular 
place in the islands where just exactly this condition prevails, but I have 
pointed to consummated acts in the past that bear out what I have said. I 
myself was appointed administrator of an estate in the Pi'ovince of Bataan. 
My appointment coincided exactly with the capture of Felipe Salvador. 

The Seceetaey of Wae. When was that? 

Mr. Reyes. About four weeks ago. When I got out there to the land, I was 
informed by the people living on the land that some of the followers of Felipe 
Salvador had passed through there and had been followed by the constabulary. 
It is my opinion that the constabulary did their duty, and nothing but their 
duty, in following those people, as it is their public duty to do so. Now, then, 
suppose I had been there when the constabulary came in pursuit of the bandits ; 
had these bandits been to me the night before and asked me for rice or any 
other sort of food, under the operations of this law the fact of their having 
been on my place and talking to me and getting food from me would bring a 
prosecution against me. 

The Seceetaey of War. Who passed this law and who can change it? 

Mr. Reyes. It is a law that was enacted by the Philippine Commission. 

The Seceetaey of Wae. Ask him if he has ever brought this matter to the 
attention of the Governor General and presented his ideas to him. 

Mr. Reyes. No, sir. 



SPECIAL REPORTS ON THE PHILIPPINES. 141 

The Secretary of War. Tell him doesn't he think that is the proper way to 
do before going over his head to me. If he had gone there and gotten no relief, 
that would be a matter then that would be a just cause of complaint, but it 
seems to me that that would be the proper way to give him an opportunity to 
consider his views. 

Mr. Reyes. I understand that that is the proper administrative process. 

The Secretary of War. Tell him I am very glad to hear what he has to say 
on the subject, but I think that is the most desirable way to reach an adjust- 
ment. 

Mr. Reyes. My idea was to convince you of the necessity of the amendment 
or repeal of this law in order that you may use your influence with the com- 
mission. 

The Secretary of War. Tell him that he must understand that I could not 
recommend the repeal of a law on the mere ex parte statement, and I would 
have to refer the matter for an investigation by the government here, and the 
logical way is for him to take it up himself with the Governor General. 

Mr. Reyes. I know that you are the head of things out here, and I wanted to 
bring this important matter before you. 

The Secretary of War. Tell him I do not legislate. Congress, acting on my 
information, could disapprove legislation, but I do not legislate. 

Mr. Reyes. I understand that perfectly well. But I understand and so do the 
Filipino people understand that, knowing your prominence in the Taft Cabinet, 
you can make recommendations that will be acted upon. That is all I have to 
say. 

The Secretary of War. Tell him that I am very glad to have heard him. 

Mr. Reyes. I thoroughly understand that you can not settle this question of 
independence ; that you have not the legal power to do so, but we wish you to 
be the voice of the people. 

The Secretary of War. Tell him they have Representatives in Congress for 
that very purpose. 

A letter was handed in to the Secretary of War by a messenger relative to 
the employment of certain Filipinos by the Hawaiian Sugar Planters Asso- 
ciation. 

A representative of the Nationalist Party then presented a memorial contain- 
ing recommendations which the Nationalist Party desired the Secretary of War 
to present to the President of the United States, in order that he in turn might 
lay them before Congress. He stated that he and his party hoped that the Sec- 
retary of War would give them his best attention in submitting them to the 
President. 

The Secretary of War assured him that he would do as he desired. 

Mr. Marcelo Eloriago, physician, was then recognized. 

Mr. Eloriago. I am encouraged to address you by the kindness with which 
you have addressed the people in opening this conference. 

It is not my purpose to speak to you of the independence of the Philippines, 
for, although I, like all Filipinos, am possessed by the desire for a government of 
our own, because we contend that the Filipinos are prepared — not only prepared 
now, but have for a long time past been prepared and competent — to rule our- 
selves, but I have not come here to ask you for this independence, nor to speak 
about it, because it does not lie in your hands to grant it to us ; nor shall I 
speak of this independence, though it is a very beautiful thing to those here 
present and to all Filipinos in general. Not only do we desire it very much, as 
your honor must have heard in your trip through the Provinces of this archi- 
pelago, where you have seen reflected this desire in the faces of all Filipinos, 
but you have heard it from the lips of all who have expressed themselves with 
sincerity. Nor do I come here to lay any complaint before you, though I, like 
the majority of Filipinos, would complain of the administration, not on account 
of the goodness or the badness with which it is carried on in the hands of the 
present public functionaries, but because, in our judgment, a radical change is 
necessary ; that is to say, we want self-government. This you will call a political 
question, and as regards political matters, I will repeat, honorable sir, I have 
not come to take up your time. I come, honorable sir, for those unfortunate 
people who groan in the jails, asking for them, who are not of the class who 
have committed common crime, but those who have committed the crimes of 
sedition, rebellion, conspiracy, and " bandolerismo." These unfortunates, con- 
fined among common criminals, do not, in the public conscience, deserve such 
classification, because the common criminal commits an act for his own satisfac- 



142 SPECIAL, EEPORTS ON THE PHILIPPINES. 

tion, either through motives of revenge and hatred, or cupidity, or by the ex- 
ercise of dastardly and vile passions. These unfortunates have committed acts 
which, although illegal, they have been impelled to do l\v an idea for the welfare 
of their country, and they should not be conlined, all the more so in time of 
peace. The confinement of these individuals by the Government can not be 
justified to-day, when peace is a fact and a beautiful reality, and therefore the 
confinement of these individuals is without reason. For this reason I come, 
honorable sir, to request of you and to ask you that before you leave these 
islands, before returning to your home, you leave behind you a lieautiful re- 
membrance of your journey over here and this remembrance consists of the 
following : 

There are at present, and have been since July 1, 1910, according to data 
furnished by the bureau of prisons. 1 prisoner for sedition, 1 for conspiracy, 6 
for rebellion, and 395 for " bandolerismo." I refer to the first three classes in 
my remarks. As regards the last class, a majority of them also belong to the 
class to which I refer. One of the most beautiful prerogatives of power is un- 
doubtedly the pardoning power, and your honor is vested with that power. If, 
on arriving on these shores and after having seen the efforts put forth by all 
classes of society to make agreeable your short stay in these islands, the greatest 
]-ecompense that could be hoped for from your honor is undoubtedly to open the 
doors of the jail, with the understanding, honorable sir, that in doing so you will 
carry as a trophy to your country the most fervent gratitude of the persons 
pardoned, of their families, and of this numerous gathering Avho hear my words 
at this moment, then all the Filipinos will once more esteem the perfect and 
accomplished gentleman who occupies the Secretaryship of War of the United 
States of North America, the perfect and accomplished gentleman who, with 
generous hands, returns the courtesy which has been bestoAved upon him. I 
thank you. 

Then followed an informal conference between the Secretary of War and 
Capt. Mens, of the Merchant Marine Service, relative to license fees paid by ship 
officers in the Philippines. The Secretary of War requested Capt. Mens to put 
his claim in writing, when it vfould receive due consideration. 

Mr. Jose Tueiano Santiago then asked, and was granted, permission to 
speak. 

Mr. Santiago. I am the most humble man who has addressed you to-day. 
Mine is the voice of the poor — the voice of the laboi-ers. members of the labor 
union of the Philippines, and of all other laborers throughout the islands. 

The Secretary of War. What do you mean by laborers'? To what class do 
you refer as laborers? 

Mr. Santiago. Laborers of all trades. 

The Secretary of Wak. Hired laborers? 

Mr. Santiago. I refer to all classes, consolidated into a general association. 

The Secretary of War. Go ahead. 

Mr. Santiago. This is a social question, tliat of capital and labor, the 
eternal question in all countries. It has been said and published and it is our 
conviction that the purpose of the Secretary of War in holding this meeting is 
to hear all complaints. W"e wish to make known what we suffer in our poor 
homes, morally and materially. We wish to have our present position im- 
iH'oved, and we have this confidence in coming here, because we know that our 
voice will reecho to a government and to a people who have proclaimed democ- 
racy. We have very many complaints, honorable sir, and those of an economic 
order, we the laboring men would state as follows : 

While the rents of our homes and of the land which we occupy, the food which 
we are obliged to purchase, the clothing which we have to wear, and all the 
staple articles that are necessary to us are very higli-priced. our wages are too 
low. and it appears that we are to lose the hope of obtaining by peaceful repre- 
sentations any improvement, because, honorable sir, whenever there comes any 
peaceful protest from the laborers, in order that the disinherited of fortune 
may make use of the only means left to them, the means which is made use 
of in all civilized countries, the means which has been taught and practiced by 
the great apostles, I will not say of socialism, but of statesmanship, in European 
and American countrios^when we resort to the strike we have against us, at 
the side of the capitalist wlio oppresses us, all of the instruments of govern- 
ment, from the prosecTiting attorney's office down to the most humble agent of 
police who arrests us. I shall tell the truth, as I am a man and have the weak- 
nesses of a man. These declarations that I am going to make to you might, 



SPECIAL REPORTS ON THE PHILIPPINES. 143 

perhaps, put me in the same category as those who have advocated inde- 
pendence, though what I advocate is social reform, and I speals; for the thousands 
of laborers who are suffering from the conditions that prevail here. In the 
political order, I may say, we can find the cause of all our evils, which we have 
so sincerely laid bare to you. We have a popular chamber, the Philippine As- 
sembly, which genuinely represehts the Filipino people. We have this chamber 
to which we might appeal and to which we have decided to appeal during all 
the time that it shall exist, to put a stop to our evils and our sufferings, but we 
see, and with regret we see — and vre must be sincere in telling you this — that this 
chamber, composed of the genuine representatives of the Filipino people, who 
did not hestitate to sacrifice themselves for their ideals, and that genuinely 
I'epresents the hearts and minds of the people, is without real power. It ap- 
pears that this popular chamber, when we appeal to it to carry out the purposes 
of the people, will turn to us and say that they are merely there to carry out 
the will of the sovereign. 

The assembly not very long ago rejected the Payne bill by a very large ma- 
jority and yet, against its will, against wind and weather, the Payne bill came 
into existence. We wish to keep this assembly, we wish to exalt it, but we 
wish that the voice of this assembly shall Ibe heard, and shall never be 
strangled ; that the assembly shall really have in practice the full autonomy to 
which it is entitled as the representation of the Filipino people. We do not 
wish to refer to any other concrete complaint, although we could mention many ; 
we have presented this in concrete form in order to make a concrete example of 
our complaints in this one case. 

We wish that an elective senate be organized as soon as possible, so that in 
some manner we may be able to have some guarantee of the acts of the popular 
chamber. There are laws, honorable sir, that exist in the Philippines that 
are not only not agreeable to the Filipino people, but will be the cause of 
general future discontent. There are laws that are not only aimed at the dig- 
nity and honor of the Filipinos, but also aimed against the dignity and honor 
of the sovereign nation that rules here. 

The Secketaby of Wae. To what laws do you refer? 

Mr. Santiago. I am going to explain. In the constitutional bill of the Phil- 
ippines it has been prescribed by the American Congress, that expresses the will 
of the American people, that here in the Philippines no law shall be enacted 
which shall restrict the liberty of speech or of the press, and yet we have a 
libel law and a sedition law which were enacted as constitutional measures. 
I wish to say that they are contrary to the purposes of the act of Congress 
of July 1, 1902. 

The Secretary of Wae. If you think that, why do you not take it to the 
Supreme Court of the United States and have it decided? 

Mr. Santiago. In my private opinion, it should be taken before the Philip- 
pine Assembly. 

The Secretary of War. If it is a question of constitutional law, the Supreme 
Court of the United States is the only tribunal that can settle it. 

Mr. Santiago. The representatives of the Filipino people who are delegates 
to the Philippine Assembly will take charge of that matter. 

The Secretary of War. You have a plain remedy if you think those laws un- 
constitutional and it is better to try that and get the thing settled if you think 
that your rights are infringed under those laws. 

Mr. Santiago. I am thoroughly convinced, as are also my associates, that the 
remedy lies in our hands, and for this reason our desire is that our popular 
chamber be converted into a genuine representative of the Filipino people, a 
genuine parliament. 

The Secretary of War. What do you mean when you sa;^ that the remedy 
lies in your hands? 

Mr. Santiago. That each one shall use the procedure that is open to him in 
order to seek a remedy that is legal. 

The Secretary of War. All right, you may proceed. 

Mr. Santiago. This is an example of some of the complaints that it is our 
duty to lay before you. AU our complaints can be summed up in this, that we 
wish to have more legislative authority and autonomy given our legislative 
chamber ; that within a very short time a Filipino elective senate should be 
organized, for if the same government is to rule hereafter as heretofore, all 
our efforts will be in vain. In the past, whatever has been approved' by the 
lower house has been rejected by the upper house. 



144 SPECIAL EEPORTS ON THE PHILIPPINES. 

The Secretaky of War. Are you stating facts when you say that the upper 
house is rejecting everything passed in the lower house? 

"Mr. Santiago. This happens, and may liappen at any time. 

The Seceetaey of War. My understanding is that at tlie last session the 
assembly passed over 20 laws that were sanctioned by the commission. 

Mr. Santiago. Yes, sir. 

The Secretary of War. How does that tally with your statement that the 
commission disapproves everything that the assembly passes? 

Mr. Santiago. I do not wish to go into too much detail. 

The Secretary of War. But isn't that a flat contradiction of facts? 

Mr. Santiago. I have already stated an example of where the lower house 
has adopted a measure and it has been rejected, referring to the Payne bill. 

The Secretary of War. I understood you to say that the commission rejected 
all the acts that were passed by the lower house. 

Mr. Santiago. I wish to say 

The Secretary of War. But did you not say that? 

Mr. Santiago. Yes, sir. 

The Secretary of War. How many acts passed by the last lower house were 
disapproved by the commission? 

Mr. Santiago. I have not the figures here. 

The Secretary of War. Can you name one, except the Payne bill? Do you 
not know that the assembly had no jurisdiction over the Payne bill and that 
that was a matter for Congress and Congress alone? The assembly could not 
pass the Payne bill and could not reject the Payne bill. All that it did was to 
express its opinion about it. 

Mr. Santiago. That is our complaint, that the opinion of the assembly in the 
matter was not heeded. 

The Secretary of War. Congress knew what they did, and it was Congress 
that did not follow their wishes. The commission had no legislative power 
over the subject and did not pass the bill and had no right to pass it. That 
was not a case of legislation by the assembly. Now, can you name a single act 
that was passed by the assembly at the last session disapproved by the com- 
mission? 

Mr. Santiago. I can not at this moment. 

The Secretary of War. All right. 

(Note. — According to the records of the division of legislative records of the 
executive bureau, 19 bills were presented to the commission by the assembly. 
Sixteen were approved ; one was postponed until the regular session ; one, re- 
ferring, to non-Christian provinces and therefore not coming within the juris- 
diction of the assembly, was tabled at that session and is now up for passage 
by the commission ; and one, providing for the remission of land and cedula 
taxes under certain conditions, was refused passage.) 

Mr. Santiago. Lastly, I should beseech the Secretary of War for something 
that I think lies within his jurisdiction, as it is a matter affecting insular 
affairs. This is a question that affects us, the workingmen. It consists in 
this, that those laborers who have been convicted by the courts of justice 
and who are at present under sentence, as some of them are, and some whose 
cases have been appealed, be pardoned. 

The Secretary of War. Of what were they convicted? 

Mr. Santiago. Some have been sentenced for threats and intimidation. 
Others, like Dr. Gomez, have been sentenced for disregarding an injunction of 
the court. I have already laid bare to you the condition of our laboring class, 
who are entirely defenseless. I have observed that the courts of justice have 
been able to issue injunctions against the sacred and inalienable right of free 
speech. 

The Secretary of War. Have they done so? 

Mr. Santiago. It must be understood, Mr. Secretary, that there is an in- 
junction issued against us having free speech. We are quite willing to abide 
by all of the provisions of the laws at present enacted. We are agreeable that 
we should be made to comply with all of the provisions of the law. We wish 
to carry on our war by peaceful methods, and the only arms that we have are 
precisely those that are granted by the law. 

The Secretary of War. To what arms do you refer? 

Mr. Santiago. Simply the expression of our desires. There is only one arm 
left to us, and that is freedom of speech. The trouble is that here, whenever 
a strike is declared, the courts enjoin us from free speech. 



SPECIAL KEPORTS 01^ THE PHILIPPINES. 145 

The Seceetaev of War. Will you send to the stenographer liere for me a 
copy of one of those injunctions of which you complain, to be published with 
your speech? 

Mr. Santiago. I can furnish many. 

The Seceetary of War. I would like to have the one of which you make 
the most complaint. Send me the most objectionable one. 

(Papers of Manila & Electric Railroad Light Co. v. Mariano et. al are at- 
tached and marked "Exhibit 1.") 

IMr. Santiago. I hope that the honorable Secretary of War will not overlook 
our last petition, which is in favor of our l)rothers, among whom is Dr. Gomez, 
who have been sentenced by the courts. Dr. Gomez has no crime charged 
against him other than having stood by the laboring men and having defended 
their rights. By doing this tlie Secretary will give us evidence by which we 
can prove to the people at large that we are not entirely defenseless. 

Now, to conclude a poorly expressed speech, I wish to say very frankly to 
the Secretary of War that it is our firm conviction that so long as we do not 
have all the political and legislative powers in our hands it does not matter how- 
good the administration may be, we can say, as did the honorable Manuel Que- 
zon, that we shall never be happy until we have our complete independence. 

Finally, we wish to say, knowing that the Secretary of War is a member 
of a Cabinet of the Government and he can convey to them our desires and 
petitions, which are the desires and petitions of all the people. It is the general 
conviction of all the Filipinos and of all men who love freedom and who be- 
live that they were born free and should live free, that they shall never be 
happy, and that the benefits of liberty will never be theirs so long as they are 
considered as colonists of another government — as men inferior to others. 
We reject with all the strength of our souls every assumption and every intent 
on the part of any sovereignty on earth who should come here to implant, 
as sovereign in these islands, a colonial government, because we Filipinos are 
not agreeable to colonial government and we do not wish it. 

The Secretary of War. Have you ever seen anything coming authorita- 
tively from Congress or the President indicating that they were going to im- 
plant a colonial government here? 

Mr. Santiago. No, sir. 

The Secretary of War. Then are you not climbing a hill before you get to it? 

Mr. Santiago. But we see in practice certain proceedings that tend to col- 
onization. 

The Secretary of War. What proceedings? 

Mr. Santiago. For example, the question of public employees. According to 
the Official Roster, which I have read, there are ?12,000,0(X) paid out in salaries 
and wages. Two thousand six hundred and seventeen Ameiican employees re- 
ceive F7,000,000 and 4,075 Filipinos receive ?=3,000,000. These data, taken in 
conjunction with the libel and sedition acts and other acts that in future we 
can foresee, and considering the position occupied by the Philippine Assembly — 
its lack of prestige — we believe, we fear, that the noble words of the unfortu- 
nate President McKinley, like the sacred and historic words of Philip II, will 
not be complied with in the Philippine Islands. 

The Secretary of War. Then you do not believe that the Americans are 
sincere when they say that they expect to have the administration here fit the 
Filipinos for self-government? You reject the sincerity of those statements on 
the part of the President of the United States, who really is the one who has 
been the principal exponent of those expressions? 

Mr. Santiago. I do not reject his sincerity and good faith and altruistic views. 

The Secretary or War. If he does not reject his good faith, who else in Amer- 
ica has made any declaration that has any authority that would indicate that 
the Americans are taking steps to make this a colony? That is what you stated, 
and I would like to know what you base it on. 

Mr. Santiago. In the words of President McKinley, as reported in the volume 
of laws 

The Secretary of War. I am not talking about what President McKinley said, 
but am asking if anybody has said anything coming from America which repre- 
sents authoritatively the views of the American people, indicating that the 
Government there has in view the colonization of the Philippines. 

Mr, Santiago. Nobody. 

The Secretary of War. Then I think you have made an unfounded and reck- 
less statement. 

117376—19 10 



146 SPECIAL, REPORTS ON THE PHILIPPINES. 

Mr. Santiago. I have ii foundatit)n for my statement. 

The Secretary of War. Then, what is it? 

Mr. Santiago. I base n\y feai-s on the fact that the Filipinos do not need to oe 
prepared for self-government ; that they have already proved by tlie past limt 
they are fit for self-government. 

The Sfcretaey of War. Then, because President Taft has announced the 
policy of preparing the Filipinos for self-government and you think they are now 
prepared for self-government, you think that the continuation of that policy on 
the part of President Taft indicates a purpose to colonize the Philippines V 

Mr. Santiago. No, sir. 

The Secretary of War. I know of no authoritative statement upon the part 
of anyone who has the right to speak on the part of the American people which 
would indicate any purpose on the part of the American people to hold the 
Philippines as colonies, and I have never heard any such views advanced there 
by anyone in authority. Furthermore, my opinion is that any such declaration 
would meet with a prompt protest from the American people, and it would not 
express their intentions. 

Mr. Santiago. The only thing I wish to say is that from this opinion — that 
we are not prepared for self-government and that preparation is necessary, and 
our own opinion that we are prepared — we derive the result that, should we fail 
to give expression to our views now, Ave can not but foresee a time, during the 
period of our preparation and before the time that the government of the Phil- 
ippines is turned over to us, when certain social and political questions will 
arise affecting the people of the United States, or affecting the Filipino people, 
either in the form of legislation or otherwise, which will bring about certain 
procedures that will lead us to the condition of colonists. Now, to give an 
example. Let us suppose that a great deal of American capital came to the 
I'hilippine Islands, and that it should be invested largely in agriculture, indus- 
try, and manufacturing in the Philippine Islands. In such a case, should the 
American capitalist get the idea that if the government were turned over to the 
hands of the Filipinos the Philippine government would destroy all of the 
concessions and privileges which they enjoyed under the American administra- 
tion, they would undoubtedly oppose any change in the government. 

The Secretary of War. Suppose they did ; do you suppose that they are 
stronger than the good faith of the American people? 

Mr. Santiago. No, sir. 

The Secretary of War. Well, I think you had better wait until the American 
people do something to indicate that they have the intent of colonizing the 
Philippines. I do not think it does any good, when declarations have been 
made by Presidents McKinley, Roosevelt, and Taft, and have been apparently 
sanctioned by Congress, indicating a purpose to bring these people up to a 
standard of government whereby there will be devolved upon them the respon- 
sibilities of their own government, to sow the seeds of distrust in the American 
people and to impugn their good faith. Now, I have such good faith in the 
purpose of the American people that, holding the views that I do with re- 
gard to the Philippines, if I thought they were taking steps under the guise 
of doing what they are saying, really to accomplish something different from 
what they say they are doing, I would not be here. 

Mr. Santiago. I congratulate myself very highly in being informed of the 
sentiments of the Secretary of War, and I fully believe in his sincerity and in 
the sincerity of the American people. It is for this reason, that-we have faith 
in the American people and in their sincerity, that we are trying to tell the 
truth to the high representative of the American Government. I believe sin- 
cerely in the good faith of the declarations mentioned by the Secretary of War, 
but, exercising the right that is ours to discuss questions freely, we wish to 
make known, once and for all, our sentiments, our intimate conviction, and our 
most earnest desire, which is that, as soon as possible, to-day, even, our people 
be given self-government — that our people be given their independence. We 
trust in this ; it was for this reason that our popular chamber, whose members 
were duly elected by popular suffrage of the Filipino people, has not desired to im- 
portune the American people, because it has faith in that, having complied with 
the requirements exacted of us and demonstrated our capacity, those promises 
will be fulfilled. The assembly, however, has brought up the question of in- 
dependence itself, and has delegated Mr. Quezon 

The Secretary of War. I know that, and Mr. Quezon has made speeches to 
that effect, but I wish to know your views, and will present them to the Presi- 
dent of the United States, r 



SPECIAL REPORTS ON THE PHILIPPINES. 147 

Mr. Santiago. I thank you in Advance for anything you may be able to do for 
ns, and I will make known the vie\^s of the honorable Secretary of War to those 
whom I represent. 

The Secretary of War. It is now 10 minutes past 1. I have been here since 
10 o'clock, but if anyone desires especially to be heard, of course I will wait. 
Unless some one desires to ))e heard we will bring the session to a close. 

Mr. Arcadio C. Gingko. Honorable Secretary, I had desired to seize this 
opportunity to talk of the independence of the Filipino people, but as some of 
the gentlemen who have preceded me have spoken of that matter and have ex- 
pressed my ideas very well, I will leave it to one side and treat of another 
matter. 

There are several colleges in these islands, some of which were established by 
the government and some by the people — public and private schools. The cor- 
poration act in one of its provisions says that private colleges and schools can 
issue no diplomas unless they have been acknowledged and recognized by the 
government. 

The Secretary or War. What does he mean by " diplomas? " 
Mr. Fergusson. He means degrees. 

Mr. GixGRO. A great many of these private schools have not been recognized 
by the government up to the present time, and I do not think that the failure to 
recognize some of these schools on the part of the government was due to any 
lack of confidence in the persons who are directing them. The department of 
public instruction has refused to recognize some of these private schools for 
the reason that the schools occupy very small buildings and do not have the 
proper equipment and materials to carry on the regular course of instruction ac- 
cording to the requirements of the department of public instruction. Some of 
the private schools are unable to meet the requirements of the department of 
public instruction for the reason that they have not got the money. Take the 
case of the Colegio Filipino, of which I was the director. It has ceased to exist. 
Various Filipinos have been graduated by this college and given diplomas, and 
some of them occupy high positions in the government, and they are no less 
popular and no less worthy men than some of those who have come from the 
public schools. Before the corporation act was enacted this college did not have 
sufficient equipment, according to the present requirements, and yet the board of 
directors and the faculty generally were able to graduate a good many scholars, 
some of whom are attorneys and some members of the assembly. I ask that the 
rights of private schools be recognized and greater facilities be given them. 

The Secretary of War. Has this matter been taken up with the Governor 
General? 

Mr. Gingro. I think there was a bill introduced in the Pliilippine Assembly 
on this matter making the requirements easier. 
The Secretary^ of AVar. Did it pass or did it fail? 
Mr. Gingeo. If I remember rightly, it was approved by the assembly. 
The Secretary of War. Was it disapproved by the Commission? 
Mr. GiNGRO. I believe the commission did reject the bih. 

(The legislative records of the Philippine Commission show no such bill as 
having ever been presented to the commission or considered by that body.) 

The Secretary of War. Tell him to take this matter up with the Governor 
General. If he does not get any remedy there, then bring it to my attention, 
and I will consider it. If I were to take up everything of that sort that had 
not been considered in the regular channels, I would simply disorganize all 
government here. 

Mr. Fergusson. These regulations to which he refers Avere probably made by 
the secretary of public instruction. 

Mr. GiNGRO. We have tried to get some remedy. 
The Secretary of Wae. In what way? 

Mr. Reyes. The secretary of public instruction was asked to recognize the 
diplomas issued by private schools. 

The Secretary of War. I suppose that was denied. 

Mr GiNGRO. The onlv answer I got from the secretary of public instruction 
was that the private schools did not have the proper housing and equipment for 
conducting the same. .^, ^, r-c 

The Secretary of War. Ask him if he took the matter up with the Governor 

General. 

Mr. Gingro. No, sir. 

The Secretary of War. Tell him that is the very reason we have a Governor 
General. He is the head authority here, with power over these other things to 



148 SPECIAL REPOKTS ON THE PHILIPPINES. 

correct any wrong that exists. It is not contemplated tliat tlie War Department 
Avill take tlie initiative in matters of this sort. It will only act in cases where 
there is some wrong clone and after all the remedies provided here have been 
exhausted. If the matter comes before me from the governor, I will look into 
it. This is not the proper time for me to do it. 

Mr. Luciano de la Rosa. I shall try to be very brief on account of the late- 
ness of the hour (1.20 p. m.). I think you must be hungry as well as the rest 
of them. 

The Secretary of War. Tell him that makes no difference. I am here to 
hear them. 

Mr. De la Rosa. I shall speak very briefly. I shall speak of the present gov- 
ernment — the workings of the administrative branch of the present govern- 
ment. 

Since the organization of civil government in these islands there has been in 
operation a civil-service law. This law was enacted by the civil commission 
and regulates all public offices and positions and all Filipino and American 
employees are subject to its operations. They are required to pass a prior 
examination for any position in the government classified service. The act itself 
is good. Its object is to secure an efficient and honest service, but, unfortu- 
nately, in practice this law has been of fatal consequences for the Filiiiino em- 
ployees. All these employees are subject to certain examinations. There are 
first, second, and third grade examinations. One of these examinations must be 
passed by any person who desires a position in the classified service of the gov- 
ernment of the Philippine Islands. American 'and Filipino employees are sub- 
jected to the same grade of examination, and afterwards, at the request of the 
heads of offices or^ bureaus in the Philippine government, ai'e placed in some 
position. In such case the American has an entrance salary that is very differ- 
ent from the entrance salary of the Filipino, although they have both passed 
the same examination ; passed the same grade. There is but one register. 
Practically, there is no Filipino employee who has started in with the salary 
for the maximum entrance salary provided by the law. On the other hand, the 
American employee who has passed the first-grade examination, where the en- 
trance salary is, for example, $75 gold per month, will always get the full 
entrance salary of $75 gold and his promotion is without limit. Now, take the 
case of the Filipino employee. Say that he has passed the English examina- 
tion, second grade. In such case the entrance salary is not the maximum salary 
for the position. The most that he can get is ?=30 or ?=40 per month. This is 
one of the anomalies that the Filipino has noted in the present civil-service 
system. Among the Filipino employees there is but one sentiment, one clamor, 
one cry — and this applies not only to the insular employees, but also to the 
provincial and municipal employees. I have not the statistical data at hand at 
present, but I hereby bind myself to furnish same to the Secretary of War. 

The Secretary or War. Tell him to furnish it so it can come in with this 
report.* 

Is there anybody else who wishes to speak? If not,' this session is now 
adjourned. 

(Adjournment was taken at 1 o'clock and 27 minutes p. m.) 



Exhibit 1. 
[Translation.] 

United States of America. Philippine Islands. In the court of first instance of 
the city of Manila. Manila Electric Railroad & Light Co., plaintiff, v. 
Patricio Mariano, Ligorio Gomez, Pio Santa Ana, Jose Turiano, Perfecto del 
Rosario, Arcadio Ginko. Antonio Montenegro, Gregorio Clemente, Sotero 
Morales, Timoteo Ansures, Diosdado Alvarez, Pio del Pilar, Tomas Santiago, 
Joaquin Balmori. Pedro Gil, Eugenio Calvez, Mariano Paguia, Aurelio Rusca, 
Aurelio Tolentino, J. Ernesto del, Rosario, defendants. Civil, No. 7154. 

complaint. 
Plaintiff alleges : 

I. That plaintiff is a foreign corporation, duly licensed to transact business 
in the Philippine Islands, and having its domicile in said islands in the city of 

^Data referred to was not furnished. 



SPECIAL REPORTS ON THE PHILIPPINES. 149 

Manila ; that the plaintiff has been duly granted, and now enjoys, a franchise 
from the Government of the Philippine Islands for the operation of an electric 
street railway system in the city of Manila, and is now, and during all the 
times herein mentioned has been, engaged in the operation of said electric 
street railway system as a public carrier of passengers for hire. 

II. That the defendants and each of them, acting in accordance with a com- 
mon purpose among themselves, have, by means of printed and written letters^, 
circialars, handbills, posters, and newspaper publications, and by means of public 
and private speeches, and in other ways, urged and requested many individuals 
and the public generally to boycott the aforesaid electric street-railway system 
of the plaintiff and to desist and abstain from traveling as passengers for hire 
on the said street-railway system ; that the defendants and each of them have 
threatened to continue and -unless restrained by the order of this honorable 
court will continue to urge and request individuals and the general public to 
boycott said electric street-railway system and to desist and abstain from be- 
coming passengers for hire thereon ; that plaintiff is informed and believes and 
therefore alleges that the continuance by defendants of the conduct hereinbe- 
fore recited will induce and persuade many persons to boycott said electric 
street-railway system and to desist and abstain from becoming passengers for 
hire thereon and will thereby cause great and irreparable damage to the 
plaintiff". 

III. That the defendants and others conspiring with them have sought and 
are seeking to induce the plaintiff to employ persons whom the plaintiff is un- 
willing to employ and to adopt methods and procedure in the conduct of its 
business which plaintiff is unwilling to adopt and have sought and are seeking 
to impose their will and judgment upon the plaintiff in the conduct of its own 
affairs, in substitution for the will and judgment of plaintiff's officers and au- 
thorized representatives ; that the defendants are not engaged in business as 
public carriers of passengers, and, in their aforesaid past conduct and intended 
conduct have no other purpose than to compel the plaintiff to accede to their 
wishes, as aforesaid, and to annoy, harass, and damage the plaintiff In revenge 
for tlie plaintiff's refusal to accede to such requests ; that the information upon 
which this allegation is made consists of the statements wh>ch have been written 
and published by the defendants ; and that, while the plaintiff has received in- 
formation from various sources that the real motive which has actuated many., 
of not all, of the defendants in their conduct is the desire to secure political 
preferment and notoriety, the ostensible reasons for the said acts on the part 
of the defendants are those heretofore set forth in this paragraph. 

IV. That none of the defendants, nor all of them together, have property 
sufficient to reimburse the plaintiff for the loss and damages which will naturally 
and probably follow from the aforesaid intended conduct of the defendants ; that 
such loss and damages can not be definitely proven as to amount, and that thwj 
commission or continuance during the pendency of this action, of the acts herein- 
before complained of will probably work an injustice to the plaintiff. 

Wherefore plaintiff prays : 

1. That a preliminary injunction be issued by this honorable court, requiring 
the defendants, and each of them, to refrain from urging, requesting, or ad- 
vising any person, or the public generally, whether by word of mouth or by 
•written or printed communication, or otherwise, to boycott the electric street- 
railway system of the plaintiff, or to desist or refrain from becoming passengers 
for hire on such street-railway system. 

2. That, in accordance with the provisions of act No. 1427, this complaint be 
received by the court in Englisli alone, and that the plaintiff be granted a period 
of 10 days within which to serve and file a translation thereof into Spanish. 

3. That, after a trial herein, the preliminary injunction to be granted in ac- 
cordance with paragraph 1 of this prayer be made perpetual. 

4. That the plaintiff recover the costs of this action of the defendants, and 
have such other and further relief as may be just and proper. 

Betjce & Laweence, 

Attorneys for plaintiff, 
No. 15 Plaza Moraga, Manila. 
Manila, P. I., May 29, 1909. 

Philippine Islands, City of Manila, ss.: 

C. B. Graves, being first duly sworn, deposes and says : That affiant is the second 
vice president and general manager of the plaintiff in the above-entitled cause ; 
that affiant has read the foregoing complaint, and is conversant with the facts. 



150 SPECIAL KEPORTS ON THE PHILIPPINES. 

tlierein recitfd : that the allegations (»f Ihe foregoiu^- cumplaiiit are true, except 
as to those made upon information and belief, and as to such the affiant be- 
lieves them to be true. 

C. B. Graves. 

Subscribed and s^^•orn to before me, in Manila, P. I., tliis 29th day of May, 
1909, the said C. B. Graves exhibiting to me liis personal cedula No. F-1539001. 
issued at Manila, P. I., on the 26th day of May, 1909. 

[seal] W. H. Lawrence, 

Notari/ Public. 

My commission expires December 31, 1910. 

I Translation.] 

United States of America, Philippine Islands. In the Court of First Instance of 
the city of Manila. Manila Electric Railroad & Light Co., complainant, v. 
Patricio Mariano, Ligorio Gomez, Pio Santa Ana, Jose Turiano, Perfecto del 
Kosario, Arcadio Ginko, Antonio Montenegro, Gregorio Clemente, Sotero 
Morales, Timoteo Ansures, Diosdado Alvarez, Pio del Pilar, Tomas Santiago. 
Joaquin Balmori, Pedro Gil, Eugenio Galvez, Mariano Paguia, Aurelio Rus&a, 
Aurelio Tolentine, J. Ernesto del Rosario, defendants. Civil, No. 7154. Sum- 
mons. 

To the defendants aliove mentioned: 

By these presents you are required to appear at the office of the clerk of this 
Court of First Instance of the city of Manila within tlie twenty (20) days after 
the service of this summons if it shall have been served in this city, and if not, 
within forty (40) days, to answer the complaint which is attached to this, in 
the period fixed by the regulations of this court ; And, if within the time fixed, 
you shall fail to appear, the plaintiff: shall have the right to ask that judgment 
by default be rendered, and may claim from this court the remedy which it asks 
in its complaint. 

Given by the Hon. A. S. Crossfield, judge of tMs Court of First Instance, on 
the 29th day of May, 1909. 

J. McMlCKING, 

Clerk of the Court of First Instance of the City of Manila. 
Copy. 

J. McMlCKING, 

Sheriff of Manila. 

[Translation.] 

United States of America, Philippine Islands. In the Court of First Instance 
of the city of Manila. Manila Electric Railroad & Light Co., plaintiff, v. Patricio 
Mariano, Ligorio Gomez, Pio Santa Ana, Jose Turiano, Perfecto del Rosario, 
Arcadio Ginko, Antonio Montenegro, Gregorio Clemente, Sotero Morales, 
Timoteo Ansures, Diosdado Alvarez, Pio del Pilar, Tomas Santiago, Joaquin 
Balmori, Pedro Gil, Eugenio Galvez, Mariano Paguia, Aurelio Rusca, Aurelio 
Tolentino, J. Ernesto del Rosario, defendants. Civil, No. 7154. 

Greetings: 

The plaintiff having entered a complaint before this Court of First Instance 
of Manila in the case above entitled, against the defendants, Patricio Mariano, 
Ligorio Gomez, Pio Santa Ana, Josg Turiano, Perfecto del Rosario, Arcadio 
Ginko, Antonio Montenegro, Gregorio Clemente, Sotero Morales, Timoteo Ansures, 
Diosdado Alvarez, Pio del Pilar Tomas Santiago, Joaquin Balmori, Pedro Gil, 
Eugenio Galvez, Mariano Paguia, Aurelio Rusca, Aurelio Tolentino, and J. 
Ernesto del Rosario, who are mentioned above, and having likewise prayed 
for the issue of a preliminary injunction against said defendants, so that each 
of them shall refrain from continuing to perform certain acts mentioned in 
the complaint and more particularly detailed further on in this mandate ; hav- 
ing viewed said complaint, the oath as to its truthfulness taken by the com- 
plainant, through its second vice president and general manager, C. B. Graves, 
and being satisfied that this is a case in which an injunction should be issued 
on account of the alleged motives being sufficient, and the complainant having 
given the bond required by the law, to the amount of five thousand (?=5,000) 
pesos, Philippine currency. 

By these presents, it is ordered by the undersigned, judge of this Court of 
First Instance, that until further orders you, the ^aid Patricio Mariano, 



SPECIAL REPOETS ON THE PHILIPPHSTES. 151 

Ligorio Gomez, Pio Santa Ana, Jos§ Turiano, Perfecto del Rosario, Arcadio 
Ginko, Antonio Montenegro, Gregorio Clemente, Sotero Morales, Timoteo 
Ansures, Diosdado Alvarez, Pio del Pilar, Tomas Santiago, Joaquin Balmori, 
Pedro Gil, Eugenio Galvez, Mariano Pagnia, Aiirelio Rusca, Aurelio Tolentino, 
and J. Ernesto del Rosario, and all of your lawyers, attorneys, agents, and the 
rest of the persons who work in your behalf, shall refrain from soliciting, 
praying, or advising any person at all, or the public in general, whether ver- 
bally or by means of printed communication or by writing, or in any other 
manner whatever, to take part in a boycott against the electric tramway system 
of the plaintiff or to refrain or abstain from becoming passengers ' on said 
electrical tramway system. 

Given in Manila, on May 29, 1909. 

A. S. Ckossfield, 
Judge of First Instance of Manila. 



Appendix C. 

[Translation.] 
Letter of the Nacionalista Party. 

Manila, September 1, 1910. 

Mr. Secretary : The Nacioualista Party believing that it Interprets the feel- 
ings of all its members honors itself in directing to you this statement of facts 
to call your attention to the true general aspiration of the people of these 
islands, whose interests, well-being, and happiness the United States has 
assumed control of in establishing its sovereignty over the Philippine Archi- 
pelago. 

The Nacionalista Party was organized in the year 1906, and promptly ol)- 
tained popular favor. It has committees established in almost all the towns of 
the archipelago, and represents approximately 81 per cent of the popular 
suffrage. At present of SI members of the Philippine Assembly it has 66, 
and of 31 provincial governors it has 23. 

This party aspires to the immediate independence of the country, because 
it believes the Filipino people endowed with those conditions necessarj^ to 
establish and maintain a stable government of law and order, as has been 
proven by the existence of what was the government of the Filipino republic 
in the years 1898 and 1899. The period of experiment which has passed during 
the American sovereignty is ample to demonstrate that the Filipinos know how 
to make use of civil and political liberty, and to comply with and to force 
compliance with the laws, to avoid disorders, prevent abuses, and live in 
accordance with the practices of civilized communities. It is for this reason 
that we believe that the transfer of political control to the Filipinos can not 
signify any sort of disturbance within the country, or danger to the life, prop- 
erty, or liberty of residents therein, but on the contrary the maintenance and 
preservation of the essential principles for which are established governments, 
law and order, and guaranties of liberty and justice for everybody. 

The independence of the Philippine people will be a due satisfaction for the 
efforts and sacrifices made by Filipinos in acquiring cultivation and western 
civilization, and a compliance with the sacred principles of equality and 
liberty of the people consecrated in the Declaration of Independence of the 
United States of North America. 

The indefinite retention of the Philippine Islands tends to produce racial 
antagonism, misunderstanding, and reciprocal jealousy among a people whose 
interests in the extreme Orient should be allied, makes difficult the rapid 
development of the national aptitude of the Filipinos in the management and 
defense of their own interests, and sacrifices the future of a young people 
desirous of following the examples of the oldest in their fruitful work for the 
good of progress and of the life of humanity. 

In this brief exposition in which we v/ill review the accomplishments and 
facts which have revealed the aptitude of Filipinos for independent self-govern- 
ment and will consider some questions which affect the problem of the rela- 
tions between America and the Philippine Islands, it will be necessary to 
separate all the matters into various chapters with the following headings : 

I. Capacity demonstrated by the Filipinos in the organization of a popular 
self-government. 

II. The capacity of the Filipinos demonstrated during American control. 

III. Alleged obstacles to independence ; their consideration. 

IV. Obstacles to the indefinite retention of the Philippine Islands preparatory 
to their independence. 

I. 

Capacity Demonstrated by the Filipinos in the Organization of a Popular 

Self-Government. 

It is im]wrtant to set forth some historic facts which bear on the aspiration 
of the Filipinos for independence, and makes patent the aptitudes of the people 
in sustaining a popular independent government. 

152 



SPECIAL, REPOKTS OF THE PHILIPPINES. 153 

The Philippine Ishmds were under the domination of Spain from the 19th of 
May, 1571, when Legaspi took possession of them in tlie name of 'Philip II. The 
laws approved in the beginning for tlie administration of insular aifairs were 
beneficent and protective in an extreme degree for the natives of the colonies. 
The Spanish people in the greatness of its then power felt itself impelled to 
carry the light of Christianity and of civilization to the inhabitants of tlie 
darkest places of the earth. It believed, honestly, that it was called by Provi- 
dence to govern foreign people, even by means of violence, with the object of 
making them happy, bringing to them knowledge of the true God and to ad- 
minister their interests paternally. The Philippine Islands were governed in 
accordance with this altruistic sentiment, and the Filipinos were effectively 
converted to Christianity and educated in what progress and European -'iviliza- 
tion means. 

The Filipinos at the end of 300 years constituted a homogeneous people, 
M'ith national aspirations, political ideals, and love of progress and liberty. 
Nevertheless, the paternal regime continued as at the beginning, based on 
the false idea that the people was a child whose will and opinion should 
not be taken into account to determine matters bearing on its own interest. The 
people understood on the other side that the colonial regime in force did not 
favor its rapid progress to place it at the height of the civilized people of the 
earth. The doctrines relating to the right of man and citizenship had advanced 
in the conscience of the Filipinos, and as such rights were not recognized under 
the colonial regime, they were consequently demanded. The people by public • 
subscription and in other ways paid for the sending of various Filipinos to 
Madrid to beg necessary reforms in the insular administration. The idea that 
the Filipino people should have the same political and civil rights as the 
Spanish people and some voice in the administration of its own affairs was 
the limit of the campaign intrusted to the Filipinos sent to Spain. 

The denial by the Spanish authorities of the petitions of the people began 
to produce discontent among the Filipinos, and the idea that they were an 
object of political abuse was readily accepted. The distance from the place 
where this colony was governed, the intrigues of the insular officials to create 
the belief in the governing authority of the metropolis of the inadvisability 
of reforming the policy and insular administration, and tlie suspicions of which 
those Filipinos who begged reforms were the object were so many causes to 
prevent an appreciation of the justice of the popular demands and contributed 
to maintain and increase the general discontent and provoked hatred toward 
that regime. 

The hatred of what was considered political tyranny culminated in 1896, when 
Andres Bonifacio, a man coming from the working mass, started an insurrec- 
tional movement against Spain which acquired great proportion, and ended 
in the so-called treaty of " Biak-na-bato." In virtue of this treaty the leaders of 
the insurrection promised to accept the program of reforms which, as they 
were made to understand, would be brought about if they laid down their arms, 
but as nothing was subsequently done, the insurrection continued, and on the 
opening of the Spanish-American war in April, 1898, the Filipinos believed 
there had arrived an opportunity of fighting determinedly for independence, 
expecting to count for this purpose on American aid. The American naval 
forces destroyed the Spanish fleet, occupied the Bay of Manila and the port of 
Cavite, while the Filipinos under the orders of Aguiualdo organized an army 
and took all the provinces of the archipelago from the power of the Spanish. 
This ended practically the Spanish sovereignty in the islands. 

TYPE OF POPULAR GOVEENMEKT. 

There was immediately organized a Philippine government in all the occu- 
pied places. The government was dictatorial at the beginning, but this condi- 
tion only lasted a month, or, that is. the absolutely necessary time that Agui- 
naldo employed in exciting th,e spirits of his compatriots in favor of Philip- 
pine independence. During this time Aguinaldo, " understanding that the first 
duty of all government is to interpret faithfully the popular aspirations," and 
understanding further " the present necessity of establishing in each town a 
solid and robust organization, the firmest bulwark of public security and only 
measure of assuring union and discipline indispensable for the implantation 
of the republic, or, that is, the government of the people for the people," pub- 
lished a decree giving instructions to the people that were liberated from the 
Spanish control to change the form of government in their respective localities. 



154 SPECIAL, KEPORTS ON THE PHILIPPINES. 

The before-mentioned instructions outlined a type of popular government simple 
and suitable to those moments of transition. It was provided that " so soon 
as the town is free from the Spanish domination those residents most distin-- 
guished by their learning, social position, and honorable conduct, as well in the 
center of the towns as in the barrios, should unite in a general meeting and 
elect by majority votes a chief of the municipality and three delegates, one 
of police and interior order, another of .iustice and civil register, and another 
of taxes and property, and a chief or head of each barrio," all of whom will 
form the popular junta. " The chiefs of the municipalities after having ob- 
tained the views of their respective juntas will unite and will elect by majority 
votes a chief of the province and three councilors for the three departments 
above named." These officials with the chief of the provincial capital .will form 
the provincial council. 

There was no difficulty in the application of these instructions, and the towns 
and provinces AA-hich were under the jurisdiction of the dictatorial government 
worked in conformity therewith. On June 23, 1898. Aguinaldo resigned his dic- 
tatorial powers in the revolutionary government, " whose object is to struggle 
for the independence of the Philippine Islands until the free nations, including 
Spain, recognized it expressly, and to prepare the country for the implantation 
of a true republic." The evident object of Aguinaldo in resigning his dictator- 
ship was to give promptly to the people guaranties of a civil government as 
most conformable to the character of the new institutions implanted. The 
revolutionary government preserved the popular form of provincial and muni- 
cipal governments under conditions heretofore stated. The central government 
was organized with the president as chief of the government and executive 
power, assisted by four department secretaries, namely, foreign relations, ma- 
rine and commerce ; war and public works ; police and interior order ; treasury, 
agriculture, and industry, with a revolutionary congress as the legislative power, 
whose members were to be elected in the same manner prescribed for the 
election of the provincial officials. To this revolutionary congress was given 
true indpendence, since " the president of the government may not prevent in 
any way whatever a reunion of congress, nor interfere with sessions thereof," 
and with a commission of the congress presided over by the vice-president, and 
assisted bj^ one of the secretaries of the same, as supreme court to take cog- 
nizance on appeal of criminal matters passed on by the provincial councils. 
The popular juntas and provincial councils Avere at the same time competent 
tribunals to take cognizance of civil and criminal matters, Avith their respective 
jurisdictions well defined. 

It is important to take note of these details to understand properly Avhat Avas 
the object of the government that the Filipinos by themselves, Avithout aid or 
council of anyone, proposed to adopt, having in mind their conditions and po- 
litical vieAvs. The fact that the Filipinos had refused to reestablish the old 
institutions, and that they had created others — neAV ones — made it clear that 
the Filipinos not only had their OAvn political ideas, but likCAA-ise that their 
ideals are the most advanced that the progress of time has shoAvn. The revolu- 
tionary government Avas. as has been seen, in its essence popular. In all the 
governmental divisions the people Avere represented by officials elected by them. 
This is especially shoAvn if we refer to the organization of the judicial poAver 
AA'hich Avas from top to bottom officered by elected officials. 

THE CONSENT OF THE GOVEENED. 

The authority of the revolutionary government was extended in a feAv months 
to all the islands composing the archipelago by express recognition of their in- 
habitants. It v^^as questioned in no part of Luzon, of the Visayas, or of Min- 
danao after the people Avere delivered from the Spaniards. The chiefs of the 
various non-Christian tribes of the north of Luzon Avho never submitted to 
Spanish domination sent messages acknoAvledging the goA^ernment then estab- 
lished. Prominent Mohammedan chiefs of the island of Mindanao gave their 
spontantous and sincere adhesion. The different grades of civilization, the 
accidental differences of religion, habits, and dialects, AA^hich are ahvays exag- 
gerated by those who are interested in presenting the Filipinos as incapable of 
instituting an independent self-government, Avere no obstacle to make difficult 
in any way the establishment of said Philippine government or the normal 
exercise of its authority over all the islands. The Filipinos on displaying their 
national unity under that government consecrated likeAvise its legitimacy under 



SPECIAL REPORTS ON" THE PHILIPPINES. 155 

the principle that tlie power of the government comes from the consent of the 
governed. 

THE PHILIPPINE CONSTITUTION. 

In September, 1S9S, the revolutionary congress opened its sessions. All the 
provinces of the archipelago were represented therein. After the work of or- 
ganization, congress devoted all its time to drawing up a constitution. On the 
20th of January, 1899, the Filipino constitution was approved and placed in 
force immediately thereafter. 

If the spirit and letter of this constitution be considered, it will be seen that 
its provisions contain all the principles of law, order, and liberty contained in 
the modern constitutions of the world. 

Title I defines the Philippine republic, and declares that the sovereignty resides 
exclusively in the people. Title II establishes the form of popular representative 
government, alternative and responsible, with three distinct and independent 
powers. Title III recognizes the separation of the church and state and the 
liberty and equality of all religions. Title IV contains the declaration of indi- 
vidual rights to life, property, freedom of thought, reunion and association, 
foundation of schools, and petition to authorities, the exercise of profession or 
Industry, and prescribes the guaranties of these rights. Authorizes the same 
rights and guaranties to foreigners and permits the latter to acquire Philippine 
citizenship by naturalization papers and residence during two years in any 
territory of the republic. Establishes obligatory military service, popular 
gratuitous and obligator-y instruction, civil trial for all crimes ; prohibits insti- 
tution of primogeniture and the entailing of property, the accepting and author- 
izing decorations and titles of nobility. Title V establishes a representative 
assembly in which resides the legislative power. Representatives will be such of 
the nation, and may not receive any imperative mandate from their electors. 
They may not be molested for their opinions or votes nor imprisoned without 
authority of the assembly. The assembly may try the highest officials of the 
government for crimes against the state. Title VI constitutes a permanent com- 
mission of the assembly during the closing of the sessions to decide on certain 
specific matters. Title VII declares the president of the republic chief of the 
executive powder which he exercises tiirough his secretaries. Questions relating 
to private interests of the municipalities correspond to the provincial and 
popular assemblies and to the central administration on the base of the amplest 
decentralization and economy. Title VIII provides the election of the president 
of The republic by means of a constituent assembly by absolute majority of 
votes. The term is for four years with reelection. The president may initiate 
laws and is obliged to promulgate those which have been approved. Title IX 
provides for a council of government composed of a president and seven secre- 
taries, who are collectively responsible before the assembly for the general policy 
of the nation, and ijadividually for their personal acts. Title X declares that 
the judicial power rests in the supreme court and other tribunals provided by 
law, empowering any citizen to bring action against the individuals of the judi- 
cial power for crimes committed in the exercise of their oflices. Title XI 
provides that the organization and powers of the provincial and popular assem- 
blies will be fixed by law under certain conditions. Title XII regulates the 
administration of state. Title XIII provides methods and form of amending 
the constitution. Title XIV provides that all officials must swear to support the 
constitution. Adopts as official language the Spanish. Temporarily places in 
force the Spanish laws and regulations as to the exercise of civil rights of 
citizens. 

There can be no doubt that this constitution not only represents the grade of 
cultivation of men that drew it up, but that it shows likewise that the Filipinos 
considered a system of popular government as that most suited to their condi- 
tions and the experiences of the country. They did not think of copying and 
imitating the institutions with which they were most familiar. On the contrary, 
they constructed a system radically contrary to that which had been in force 
here for several centuries. In none of the lines of this constitution is observed 
a tendency to maintain any sort of oligarchy, but in all of them are imprinted 
democratic principles more accentuated, perhaps, than in many of the republican 
constitutions of the day. The Philippine constitution, as it was drawn up by 
representatives of the revolutionary congress, portrays with fidelity more than 
any other act of the Filipinos of that time the aspirations and political ideals of 
the people of the islands. 



156 SPECIAL KEPORTS ON THE PHILIPPINES. 

CONDITIONS WHICH PKEVAILKU UNDER THAT GOVEKNiMENT. 

Ill the conditions of order, tranquillity, and progress wliicli prevailed under the 
authority of the revolutionary government, there was clear, y displayed the good 
dispositions of these people for the direction of their own affairs. A decree of 
Aguinaldo abolishing all gambling privileges and cockfighting taxes, " because 
they tend only to ruin the people, with slight advantage to the public treasury," 
was sutticient that the people should give up completely their ancient favorite 
practices. Crimes and ordinary misdemeanors diminished notably in number. 
There were enjoyed as in no time entire security, well-being, and content. The 
parties of bandits which from the most remote periods were accustomed to dis- 
turb the order voluntarily disappeared. The spirit of cooperation of the people 
in the measures of the government for good order and progress was evidenced by 
the liberal treatment of the Spanish prisoners, the respect to foreigners, the 
attendance at school, and the return to customary field work in those places In 
which the revolutionary condition had ceased. 

The government on its part, without neglecting provisions for war, consecrated 
itself to organize the most important and urgent public services. The corps of 
civil physicians to watch over sanitary conditions, hygiene, and urbanization of 
the provinces was established. There was created a civil register in all the 
municipalities. The chiefs of the municipalities were authorized to act pro- 
visionally as notaries in the authentication of documents and extra.iudicial acts. 
There was' founded a university to teach law, medicine, pharmacy, and notary- 
ship, and the institution "Burgos " for studies of the general high-school class, 
and there was ordered the reopening of all the municipal primary schools. All 
the provincial councils and popular juntas were ordered to proceed to the repair 
and preservation of roads, bridges, and public buildings, because " the ways of 
communication were one of the causes which contribute to material and moral 
progress of every country." There was created an institute for vaccination to 
prepare and distribute vaccine to all the provinces. There was established a 
bureau of census and statistics. There was organized a corps of communications 
to regulate the sending of correspondence and telegraphic dispatches between 
the towns and provinces. 

The government not only organized practically all the public services which 
existed under the Spanish government, but likewise adopted various pr(jvislons 
which showed its good desire to watch over the general interest, prohibiting the 
sale of copra which is not thoroughly dry "as prejudicial to the credit of com- 
mercial articles," and the slaughtering of carabao useful for agricultural pur- 
poses, " Ijecause they might be better used in the fields.'' 

THE OPENING OF HOSTILITIES. 

On the 23d of January, 1899, in accordance with the constitution, proclama- 
tion of the Philippine Republic was made in the town of'Malolos; Aguinaldo 
was proclaimed chief of said republic. But shortly thereafter, that is, on the 
4th of February, occurred the opening of hostilities between Americans and 
Filipinos. This outbreak was a surprise for the Filipinos. But the moral 
union of the people and Philippine Government was displayed during the new 
condition of war. Aguinaldo published a proclamation ordering the war and 
his order was obeyed in all sections. The American forces encountered open 
resistance wherever they were, and had to forcibly capture or force the Philip- 
pine forces to surrender by superiority of resources. The spirit of resistance 
terminated toward the end of 1901 and the Filipinos, through the efforts made 
by some of their compatriots, agreed to recognize American domination. 

II. 

The Capacity of the Filipinos Shown During American Control. 

Nothing can indicate better the capacity of the people for independent gov- 
ernment than the spontaneous adhesion that the same people is giving to the 
essential democratic principles which inspire the present government and its 
cooperation in the many steps that have been taken for the betterment of the 
intellectual, moral, social, and material conditions of the people. 

If this people should be lacking in those conditions necessary for progress, 
<loubtless any eifort in that direction undertaken by the American Government 
would have been fruitless. It would not be true to affirm that all the progress 



SPECIAL KEPORTS ON THE PHILIPPINES. 157 

realized in the Philippine Islands has been due to the energy and talent of the 
government, since without the cooperation of the people, without the practical 
sense indispensable to appreciate good, no beneficent work would have been 
carried successfully to a termination. 

A resum§ setting forth the manner in which the Filipinos have conducted 
themselves in the exercise of the powers conferred on them xmder the present 
government will show us that the conception and application by the Filipinos 
of a popular governm'ent are entirely satisfactory. 

PUBLIC OEDEE. 

The satisfactory state of public order in the islands has been brought about 
with the aid and elTorts of the Philippine people. The work of the American 
Army doubtless has been a factor in finishing the war and establishing peace, 
but the maintenance of order and tranquility after the period of the war is 
due to the determined attitude and to the decided interest of the people to 
pursue in peace the struggle for their political ideals and to consecrate them- 
selves to the cause of progress and prosperity destroyed by sis years of dis- 
turbance. This attitude reveals nothing but good, practical sense — the good- 
disposition which this people has of considering existing conditions in the 
determination of its national convenience. 

Public order is maintained in the municipalities and provinces by Filipino 
officials and agents with the exception of some chiefs and officers of the con- 
stabulary. The agricultural work and the operations of comm-erce are effected 
with the greatest tranquility and security for all. The violations of order and 
the local disturbances occasioned by misdemeanors are not numerous, so that 
the Philippine people may sustain in this matter a favorable comparison with 
any of the most civilized countries of the world. The good disposition of the 
people toward the maintenance of order and the discipline of the law is evi- 
denced most pathetically, taking into consideration that there has passed but 
a short time since the period of war with the subsequent disturbance and that 
there has not disappeared from the mind of the people many of the motives 
and prejudices which originated in the war and provoked from- time to time 
discontent with the present situation. 

There is no little argument in favor of the orderly and disciplined spirit of 
the people in the fact that the exercise and practice of civil and political rights 
completely new to the inhabitants of these islands, such as liberty of religion 
and direct suffrage, have not occasioned long and bloody struggles which tht^y 
have produced in nations of longer history than ours. 

THE ILOYE FOE AND PEOGEESS IN PUBLIC INSTEUCTION. 

The great interest which the Filipino people has shown for education is quite 
evident. One of the causes fi-equently cited and which contributed to the dis- 
content of the Filipinos with the Spanish regime was the monopoly exercised 
in instruction by the religious corporations, which showed no great desire for 
the instruction of the masses of the country. In reality, during that regime 
primary or elemental instruction received little attention. The instruction in 
the secondary grade and in superior and university grades was deficient and 
sectarian. But in the midst of such a vicious system the zeal for study and the 
interest of families in sending their children to the schools and colleges estab- 
lished in the Philippines or to Europe to acquire a more extended education 
were very marked. Poor families imposed on themselves all classes of sacri- 
fices that their children might study. In many cases they begged of the rich 
families or their friends that they should accept their children in domestic 
service so as to permit them some free hours to dedicate themselves to study. 

The general movement noted under American control in favor of education 
is not, therefore, new in the history of this country. The Filipino people ap- 
preciates the advantages given by education and information of life. It recog- 
nizes its necessity and has a sympathy and aptitude for all sorts of education. 
This explains the fact that the number of children attending the schools has 
crowded in many cases the capacity of said schools and that at times there was 
necessity of denying admission to pupils. This explains likewise the fact that 
there has not been lacking pupils in the industrial schools or others of special 
branches of education little or not at all known in past periods.' It is a source 
of congratulation to, be able to say that in all experiments which have taken 
place to prove the love of instruction or the measure of the intellectual capacity 
of the people the proof in our favor has been decisive. 



158 



SPECIAL REPOETS ON THE PHILIPPINES. 



Two years ago effort was made to open courses for nurses. This was an 
instruction completely unknown in the country. The education given to woman 
in former times — not to be for a long time absent from home, not to know or 
to comply with other obligations than those purely domestic, not to require of 
her severe and difficult labor which was considered proper only for men — 
appeared to give little hope for a successful outcome of the new experiment, 
but, in view of the results obtained, there can be no doubt that the effort has 
been a complete success, which speaks in favor of the aptitude of the Filipino 
woman for the evolution of modern civilized life. The constant increase of 
schools and of the attendance of children of the school age since American 
occupation are phenomena generally observed in all the Provinces. The fol- 
lowing statement of attendance taken from the last report of the secretary of 
public instruction proves this assertion : 



Year. 


Public 
schools. 


Monthly 
attendance. 


1 903 V 


2,000 
2,233 
2,727 
3,166 
3,436 
3,701 
4,194 


150, 000 


1904 


227, 600 


1905 


311,843 


1906 . . 


375, 534 


1907 


335, 106 


1908 


359,738 


1909 


437, 735 







There has been observed on many occasions a tendency to suppress or post- 
pone the payment of land tax by the municipal or provincial governments, while 
at the same time they have tried to continue in force that part of said tax 
destined to the schools, and when this has not been successful the consideration 
of closing the schools in case of failure to pay said tax has exercised such in- 
fluence in the provincial and municipal governments that there have continued 
in full effect the provisions of the law. 

In view of the foregoing demonstration, there can be no fear that the Filipino 
people will maintain itself in ignorance. A people that shows the live interest 
in being instructed such as the Filipino has shown before and now can not 
constitute a danger for a regular and orderly maintenance of a popular gov- 
ernment. 

THE EXEECISE OF SUFFRAGE. 



One of the fears of those who considered the Filipinos incapable of popular 
self government is that they would not have sufficient discretion to elect to 
those offices which must be tilled by election the best people in the community. 
The exercise of suffrage by the Filipinos has shown, nevertheless, that they know 
how to make good use of this privilege. Up to the present the electors have 
been able to confide public offices to persons who could duly perform their 
duties as officials. In the majority of cases they are persons of intelligence 
and responsibility who have known how to justify their election and bring 
about during their official terms the betterment of their respective towns. An 
excellent proof of this fact is that with rare exceptions there has not been sus- 
pended or deprived of his office any provincial elective Filipino official since 
American domination. Nor is the percentage of municipal officials suspended 
or deprived of office greater than that in independent nations, especially if it is 
considered that not all the suspensions or deprivations of office are the result 
of grave faults which affect the morality and capacity of certain officials. 

The good judgment and discretion of the electoral body are so manifest that 
the results of an election have given origin to few well-founded protests. The 
logical and immediate inference that we may draw from this is that there 
exists within the electoral body an intelligent public opinion which inffuences 
and decides emphatically the results of the elections. 

An indication likewise highly favorable to the Filipino peo]ile in relation to the 
exercise of the suffrage is that all the elections have taken place with the great- 
est order in spite, many times, of the intensity of the struggle between candi- 
dates of different parties prior to the election. It is not less patent and indic- 
ative of fine discretion in the people the fact that after the elections, or after 
a protested election has been decided, the defeated minority shows itself 
definitely resigned and makes no effort to injure or obstruct the administration 



SPECIAL. REPORTS OIsT THE PHILIPPINES. 159 

of tlie official elected, as happens in other countries that are more accustomed to 
the use of the suffrage. We do not wish absolutely to affirm that there are no 
exceptions to this rule, but that this is the rule confirms our statement that the 
Filipino people is capable of managing a popular government supported by the 
influence of a sane and intelligent public opinion. This influence shows itself 
likewise in the cases of those officials who in power have not complied with 
their promises and duties and who later, on working for their reelection, fail in 
their object even though men of education, money, or influence. 

ORGANIZATION OF POLITICAL PARTIES AND THEIR RELATIONS. 

The organization of political parties under democratic rggime is absolutely 
necessary. Political parties are organized in the Philippines, and from the be- 
ginning there was markedly displayed the two tendencies which existed in all 
countries in which prevailed individual liberty, namely, the conservative and 
the radical. Before the proclamation of the so-called organic law of July 1, 1902, 
there was organized the so-called Federal Party, which formulated the principle 
of final annexation of the islands to the United States. Without affirming 
or discussing whether its directors and founders sincerely sustained this princi- 
ple or not and whether it was changed later, the fact is they found in this 
formula, or rather with that of peace, a means of weakening the revolution. 
Forced thereto by circumstances, the people accepted peace under the American 
sovereignty. The Federal Party was the only party during that time, since the 
partisans of immediate independence of the country, in spite of having attempted 
to organize a party, did not obtain the consent of the American Government 
which qualified them as upholders and sympathizers of the revolution in arms. 
Later, when the organic law was promulgated, different parties arose, all of 
Avhich aspired to final independence for the country. The Federal Party in 1904, 
on seeing that the idea of annexation found no popular support, changed its 
original program and set forth in its place the obtaining of independence by 
gradual steps and successive increase of Filipino control in the administration of 
the Government. Without weakening their views, strong In their former desii'es, 
the partisans of immediate independence formed at the end of the year 1906 a 
great organization entitled " Partido Nacionalista," which has extended rapidly 
throughout the country, because it responded better to its political aspirations. 
The principal program of this party is, as has been said, the immediate inde- 
pendence of the country.- 

In this manner were properly defined the two tendencies of Filipino opinion. 
The principals of the Federal Party, now called " Partido Progresista," repre- 
sent the conservative tendency of man, and the " Partido Nacionalista " the 
radical tendency. 

But even the conservative tendency can not now support in any manner the 
permanent maintenance of the present relations with North America, nor the 
radical tendency conceive of the employment of violent measures to bring about 
the change of sovereignty. One, as well as the other, believes that independence 
must be given to the people of the islands, and differ only in the idea as to how 
and when independence must be obtained. 

In the relations between the men of both parties there is noted nearly always 
a close alliance and unity of opinion in considering matters relating to the 
best manner of administering local affairs under this provisional government, 
and although, as is natural in time of elections, there are uttered bitter censures 
and recriminations, the harmony which is maintained and the courtesy with 
which they treat each other in the course of their relations are an indication 
that they consider the pu.blic interest completely separate from the selfishness 
of faction or of party. Crises have occurred in the relations of both parties 
within the assembly and out of it, and likewise in the relations of both parties 
prominent men in the same party, but such crises not having been frequent 
were altogether passing, ending in the greatest cordiality and respect. It is 
certainly flattering to the pride of the Filipinos to cite that fact which shows 
better than any other the practice of tolerance and of mutual consideration 
between both parties which occurred in the assembly during the discussion of 
the Payne bill. The Progresista minority unanimously declined to assist at the 
sessions of the assembly, believing itself oifended at the treatment given it by 
the majority, but at the end of ^ week, through mutual explanations, the affair 
remained satisfactorily adjusted to both sides. 



160 SPECIAL KEPORTS ON THE PHILIPPINES. 

PROVINCES AND MUNICIPALITIES. 

The administration of the Provinces and municipalities can not but merit a 
favorable opinion regarding the aptitude of the Filipinos for the exercise of the 
powers intrusted to them. In reality, considering the provincial administra- 
tion, the functions authorized to Filipinos suffer such limitations that it is 
frequently found that the local initiatives are crippled by the delays of a cen- 
tralized regime. But in spite of this, to the energy, skill, and patriotism of the 
provincial governments are due the preservation of order, the progress of 
public instruction, the betterment of the highways, bridges, and public buildings, 
the introduction of sanitary and hygienic measures, and the assurance of im- 
provements of all sorts for the well-being of the community in their respective 
Provinces. 

The municipal officials, on their part overcoming many difficulties, of which 
the greatest is the lack of funds, show each day a noble emulation in bettering 
the public service In their respective localities. If the interest displayed by 
the municipal officials in the construction of public edifices, particularly schools 
and markets, in the boring of artesian wells for imblic sanitation, and the 
improvement of neighborhood roads, in the prosecution and punishment of evil 
doers, and in the ornamentation and sanitation of public places, be considered, 
there is reason for saying that everywhere they understand the true public 
interest, and the officials understand at the same time that they are servants 
of the public well-being. The municipalities which can count on sufficient funds 
have realized all classes of public works that are monuments of progress and 
of efficiency in the public service. The majority of the municipalities naturally 
can not display such monuments because of lack of resources, but all can show 
that they have done something for the towns and for the people, who see with 
deep feeling the excellent use they are making of the money provided by the 
payment of their taxes. 

The interest with which in some places are attended the popular conferences in 
which instruction is given to the people of its rights and civic duties, is an 
argument against what is affirmed by some writers of " Caciquismo " of the local 
officials, which they supposed very general in the towns of the Philippine 
Islands. In these conferences the first who take part are the very local func- 
tionaries and young people of the schools. The Philippine Assembly initiated a 
law for this purpose, which is producing excellent results. 

PHILIPPINE MAGISTRATES AND JUDGES. 

There is a very general belief against the methods of administration of jus- 
tice by oriental people, especially when the loarties in litigation are not natives, 
but of other races. The organization of tribunals of justice in the Philippine 
Islands, and the participation which has been given to the Filipinos in it, have 
shown the inconsistency of such belief. The Filipino magistrates and judges, 
whether they have sat together with Americans, or alone, can not be accused of 
partiality or bad faith. Some decisions of Filipino judges have given origin 
to suspicions among the Filipinos themselves that they have been dictated to 
under executive influence ; it has not been possible to confirm these suspicions, 
and they only have their foundation in what is generally considered a defect 
in the present system, which confers on the executive the power to name and 
remove said judges. No American or foreigner has been able to formulate a 
just accusation against any Filipino judge for lack of competence or integrity 
in his decisions and methods, and this proves that the law in Filipino hands 
offers equal protection to everyone, native or foreigner, poor or rich. The 
reputation of the Filipino judge has always been very high, and this has been 
noted by some Americans who have familiarized themselves with the affairs of 
the Philippine judiciary. There is not seen then any reason to believe that if 
the government were Filipino, the native judges would not conduct themselves 
in the manner in which they now perform their duties in hearing and deciding 
the questions which are presented before the judges without fear or favor. 

FILIPINO EMPLOYEES SUB.JECT TO THE CIVIL SERVICE. 

The efficiency shown by Filipinos subject to civil service in public office 
which they occupy justifies the belief heretofore expressed publicly before a 
body of the Representatives of Congress in 1905, that there were sufficient 
persons in the country to serve the public interests in the different branches of 



SPECIAL EEPORTS ON THE PHILIPPINES. 161 

administration. This statement was understood apparently erroneously as 
an enunciation of the incorrect idea that the Filipino had of popular govern- 
ment, believing that there was necessary a governing class and another class 
obedient and submissive. But the idea which it was intended properly to 
express was that the administration of the public interests might be well served 
by a sufficient number of persons who possess the necessary intelligence and 
?;eal for the fulfilling of their public duties. This belief has been completely 
<lemonstrated by facts. 

Speaking of Filipino employees, the executive secretary, in his annual report 
for 190-5, made the following statement : " The Filipinos have demonstrated 
marked capacity in many respects, and a devotion to duty and a desire to 
increase their knowledge, and have demonstrated that under good auspices they 
may execute original work of highly creditable character, which merits more 
praise than is generally conceded to them." All the Philippine Governors 
General during the American administration have agreed on this point, and 
Governor General Forbes, in his inaugural discourse, said : " I would not desire 
better men than the present ofliicials and employee.s of the government, Ameri- 
cans as well as Filipinos. They may be favorably compared with any men 
that I have seen in my life in respect to aptitude and fidelity in compliance 
with duty." 

PHILIPPINE ASSEMBLY. 

We reach the climax of this probational process. If the plain demonstrations 
of capacity given by the country in the other orders of public activity hereto- 
fore mentioned were not suflftcient, the establishment of the Philippine Assem- 
bly, and its recognized success, give one of those incontrovertible arguments 
which in other affairs would bring about a decisive and final state. Summariz- 
ing in the work of reestablishing public order, there was nothing new, the Fili- 
pino people having been accustomed for many years to comply with the law 
and to maintain its rule almost by itself. The Filipino people is old in the 
practices of a life of progress and order. Thus it may be understood how the 
exercise of the liberty of the press, the liberty of association and assembly, the 
liberty of petition have not produced disturbances of any class, nor have grave 
disturbances been caused by the freedom of religion in a people accustomed to 
profess the religion of the state, and with a great majority belonging to a single 
religion. Guided by its profound good sense and the experience of freer people, 
there was settled in the courts, and not outside of them, those contentions as 
to ecclesiastical property, the defense of whose possession and control would 
have shaken in other places, we are certain, the foundations of society. In the 
midst of the revolution the people knew by itself how to maintain order and 
respect property in those towns where there was lacking a local government, 
due to the capture thereof by American troops and the abandonment thereof a 
little later by them, and consequently lacking the safeguards either of a Philip- 
pine government or of an American government. The fact that a great deal of 
the merit of completely reestablishing public order in the Philippines may justly 
be attributed to the local authority, to the people itself, should carry great 
weight with those who honestly, but with little knowledge of conditions, con- 
stantly speak of the ignorance of the Philippine people and of their lack of 
qualifications to maintain government of law and order, but produces no great 
effect with those who are more familiar with our conditions and know perfectly 
that nothing of this is new among us. 

A stronger argument is supplied by the appropriate use of the suffrage, effi- 
ciency of Philippine officials, elective as well as appointive, and the success of 
local governments. We doubt if there are people who exercise the suffrage with 
the same purity and order as the Filipino people. We are sure that the effi- 
ciency of our public officials passes the most rigorous test. It is not ours, but 
American and foreign opinion which places our tribunals of justice at the high- 
est level. And just as in the exercise of the suffrage, however great were the 
limitations under the past domination placed on our initiatives and the free 
manifestation of civic virtues, in the local governments of modern type im- 
planted in the Philippines during this regime, there have been given those clear 
demonstrations of political experience that prove that the progress and the con- 
dition of instruction of the people can not be judged solely by the data that the 
census may give with reference to literacy, and that true political experience de- 
pends as much on the opportunities given to the people as those high virtues, 

117376—19 11 



162 SPECIAL EEPOETS ON THE PHILIPPINES. 

valor, energy, discretion, and patriotism, wliicli are tlie fruit of civilization, 
and are not the exclusive patrimony of any race. 

Where fear would appear better founded is in the establishment of a popular 
assembly. The Filipinos, it \Yas said, have not , had any parliamentary ex- 
perience. There were not lacking persons who, having superficially studied 
history and finding that the life of some parliaments had been worked out 
through centuries, exacted as an essential condition for the success of parlia- 
mentary liberty centuries of experience. On the other hand, elections for 
delegates to the assembly had been very bitter and the triumphant party with 
an immense majority was the radical party, the defender of immediate inde- 
pendence, which had had little contact with the present regime, and which 
had not intervened, except when the people was called to deposit its votes. 

Contrary to all the fears, contrary to all prejudice and suspicion, the Philip- 
pine Assembly was inaugurated on the 16th day of October, 1907, and its 
organization was immediately made effective. The organization was com- 
pleted in forty minutes. When there is considered the inherent difficulties in 
the organization of an assembly, when it is taken into account the difficult 
experience of the older parliaments, when the recent experience of Cuba is 
brought to mind, calm and reflection permit us to appreciate all the success 
of this decisive step taken by the Filipino people. 

The practical sense of the assembly is singularly revealed in the type of 
organization adopted. It is easy to understand that the representatives of the 
people having united for the first time, many of them coming from the provinces 
most remote from the capital, and the country being without fixed precedents, 
each one would bring a private opinion as to organization. Finally, there was 
adopted the type of organization of the Congress of the United States, which, as 
Avas seen later, was most adapted to our interests. Probably there was con- 
sidered in this selection the idea that in this manner, selecting a type that was 
familiar to Congress, the latter might judge of the labor of the assembly with 
greater facility and accuracy. It was not the most appropriate to deliver lon^ 
and sterile orations and provoke in the assembly those debates that are so 
frequent in other countries, and which, though they result in a very interesting 
spectacle for those that have no interest in the success of the organization, 
injure on the other hand the seriousness of an assembly and necessarily delay 
the prompt and proper dispatch of business. The lines of discretion and serious- 
ness that the delegates adopted then in their deliberations and debates show 
that their intention on adopting the American rule was that of abolishing all 
unnecessary difficulty and to proceed with resolution and expedition in the 
transaction of the important business in its charge. The Filipino delegates 
were not ignorant of the defects which, among the advantages of regulations 
formed through patriotism, wisdom, and experience, appear, as in all human 
work, in the organization of the Congress of the United States, but placed the 
application of the rules in the hands of persons who knew how to interpret 
at the same time the true needs of the assembly and its sentiments. There was 
named as president of the committee on rules a member of the Assembly, and 
not the speaker, and the theory of good democracy applied to the dispatch of 
the business of the assembly gave as a result that initiative which received a 
stimulus, and all the legislative business was regularly and promptly dis- 
patched. The fact that the majority of the assembly composed more than 
four-fifths of the membership, served to show the liberality and patriotism of 
its members, and there was conceded to the minority in spite of this not only 
representation in all of the committees, but the chairmanship of several of 
them. There were associated all and were excluded none from the labor of the 
assembly ; thus there was recognized and protected the minority and there were 
likewise fixed the foundations of an organization the results of which we are 
now going to see. 

The assembly entered boldly on its duties. Without passion and without 
hatred, forgetting that its members belonged to different political parties, that 
there had been a fierce struggle in the elections, there was remembered only that 
they belonged to a common country and the public welfare was a sacred charge 
placed in its hands. The highest feeling of responsibility, that responsibility 
of which the Filipino people had given so many and such gi-eat proofs in other 
moments of its history, accompanied the. assembly in its tasks. Its legislative 
work has been fruitful and the scalpel of study and criticism penetrated from 
the little local details to the organization of the central government. The task 
of fixing the budget was approached vigorously and there Avere presented pro- 
posals to simplify the present organization of the central government. Without 



SPECIAL EEPOKTS ON THE PHILIPPINES. 163' 

systematic opposition, projects were defeated considered prejudicial to the 
people or that infringed its rights. Nothing indicates better the character of 
the first assembly than the constructive tendency of its laws, and this merit,, 
singular in a new legislative body, would merit without doubt the close con- 
siderations and lengthy study of those who may or must judge of the capacity 
of the Filipinos for the management of their own affairs. 

Nothing was forgotten, and the resolutions of the assembly making a public 
declaration of the sentiments of the people to live a free and independent life, 
are a monument to its loyalty and it civicism. It is not true that some of the 
political parties represented in the assembly have made concrete promises of 
immediate independence if its members reached the assembly, and the only 
thing which sustained it and which now sustains it is that the Filipino people de- 
sire it. The policy of the assembly was conducted within the amplest tolerance 
and the best feeling of intelligence and cooperation, and this was done not be- 
cause within or without the assembly the Filipino people had renounced its 
ideals, but because it was believed that such policy would be, among other 
measures, a proper argument to show the justice of such ideals. In this manner 
when the party that obtained the majority in the first elections again presented; 
itself to the people in the electoral campaign Avhich preceded the second as- 
sembly, it received the most sincere and complete approval of the people, which 
elected a more considerable majority in its favor than in the past. 

Education, material improvements, agriculture, industry and commerce, public- 
health, local governments, labor — everything which has been under the con- 
sideration of the assembly received immediate and efficient attention. Two very 
notable tendencies of the legislation passed are, first, the profoundly democratic 
sense which was shown from the first instance in the law appropriating a million 
pesos for the schools, and in the law governing labor accidents ; and second, the 
character of stability brought to the legislative sphere and appropriately shown 
in the law which provided for the revision of all the codes and the compilation 
of the infinite number of administrative laws now in force. When there is seen 
and judged with eyes free from all prejudice the result of the Philippine As- 
sembly, Avhich has fully justified the hopes of those that vouched for it and were 
responsible to Congress for its establishment, and when are considered the 
tremendous difficulties that in the advance of the liberty of all countries accom- 
pany the organization and operation of popular assemblies, in the serene judg- 
ment of all impartial and just men there must necessarily be admitted the basis 
on which the Filipino people rests in insisting on their demands which adversity 
and mishaps fortify and solidify, to possess the high attributes and assume the- 
grave responsibilities of a sovereign free and independent government. 

III. 

Alleged Obstacles to Independence : Their Consideeation. 

There are some objections that the statesmen responsible for the present 
policy of the United States in the Philippines have presented to the natural 
ambition of Filipinos possessing an independent self-government. These ob- 
jections are summarized briefly in the lack of preparation of the Filipinos for 
the exercise of the responsibilities and powers inherent In such governments 
on account of defective conditions, some inherent and others transitory, pre- 
sented by the present state of Philippine civilization, or the nature of the 
Filipinos. Whether these objections have or not a solid foundation to deny or 
defer the transfer to the Filipinos of political control of their own affairs, is 
what we will consider in this chapter. 

It is to be lamented, nevertheless, that the progress of political science has 
not established definitely the conditions of preparation which people require 
to be able to govern themselves, since the lack of common rule makes it little 
less than impossible to know if a given people has or not the necessary condi-' 
tions to maintain an independent government. Independent nations present such 
different conditions, such contradictory systems of government, vices and virtues 
so different, languages, customs, and usages so varied, that truly we can not 
know to a certainty what are the conditions which exist in independent na- 
tions and which are lacking in the Filipino people. This will necessarily limit 
our study solely to those conditions or defects of our people, or of our civiliza- 
tion, that are mentioned by those who are interested in not conceding inde- 
pendence to the Filipinos. 



164 SPECIAL KEPORTS ON THE PHILIPPINES. 

In the declaratious made authoritatively of the American policy in the 
Philippine Islands, there has been frequently stated the belief that the islands 
would be delivered to a bloody and horrible chaos if they should be left to their 
fate, that the United States has the duty of educating the ignorant masses of 
the people until they can know their civil rights and sustain them against the 
abuses of tlie superior classes, and exercise with certainty their political rights ; 
that if the islands should now be left to the Filipinos, the probable result would 
be the organization of an oppressive and cacique oligarchy, which would ex- 
ploit the inferior masses and that the educated, as well as the ignorant masses 
of the Filipino people, must be educated in the practice of political power, of 
which they have not had experience, until the Filipino people shows itself 
reasonably fit to control a popular government, maintaining law and preserv- 
ing order, and offering to the rich and poor the same protection of the laws and 
of civil rights. 

DISORDER AND CHAOS. 

The first point we must study, because it is the most important condition in the 
life of an independent government, is the question of order and the method of 
preserving it. The causes which are indicated as likely to generate a condition 
of anarchy, the government being in the hands of the Filipinos, ai'e: (a) That 
in all periods and from the earliest days of Philippine civilization there have 
existed in the islands bands of ladrones who infest the provinces and control 
pacific residents and the forces of the government ; ( & ) that the profound 
ignorance of the masses constitutes a constant danger to public tranquillity; 
(c) that the irresponsible power of the caciques over their ignorant fellow- 
citizens would always be used in cases of discontent for purposes of vengeance 
and to destroy the peace. Before beginning to consider these characteristics, 
which are believed peculiar to the present state of the country, we take note of 
what many impartial observers have written concerning the character of the 
Filipino people. The Filipino people, according to these observers, who have 
associated familiarly with them, is pacific by temperament, is inclined to peace, 
is patient, and at times eA'en indolent in seeking reparation for offenses com- 
mitted against them when they may be borne. This opinion is proven by 
liistory. In the long period of Spanish domination history scarcely records a 
few local disturbances ; not one had a general character, except the revolution 
of 1896, which reappeared in 1898, and which as known was based on political 
motives. 

During the period of the revolutionary government no grave disturbances oc- 
curred affecting the interior order of the provinces comprehended within the 
jurisdiction of Aguinaldo's government. Nothing then may be feared with re- 
spect to the public order and public tranquillity which may come from a natural 
propensity in- the inhabitants of the islands for disorder and revolution, as occurs 
in many countries of Latin origin. 

The existence of certain bands of robbers, few in number, and disturbing few 
provinces during the Spanish Government, were the consequences of temporary 
causes arising from the deficiencies of the political system in force in the islands 
and from the condition of poverty which prevailed among the common mass of 
the people. The rural inhabitants of the Philippine Islands were unarmed 
against the violators of order, and the guardia civil which was spread through- 
out the provinces was insufficient to protect the inhabitants of the remote barrios. 
The terror of the guardia civil and the crimes it committed against defenseless 
residents tended rather to augment the number of robbers than to suppress them. 
The lack of means of defense and protection must always constitute a cause of 
public insecurity, because it is not practicable to require the residents of a neigh- 
borhood to defend themselves against the wicked members of the community who 
have arms and resources dangerous to their lives and properties. The condition 
of order during the present sovereignty improved only when the constabulary 
•could be concentrated in a sufficient number in one or a few provinces to en- 
courage the people to pursue robbers and to terrorize and scatter the latter 
by their presence. The only measure consequently to remedy such unfortunate 
condition is to distribute among the people sufficient arms to resist and destroy 
individuals who are members of such bands. Failing in this, the same state of 
things which formerly existed will still exist in those neighborhoods in which 
the police force is not sufficiently efficient by number or by arms to prevent the 
temporary formation of bands of three of more persons devoted to robbery and 
violence, especially in the years of bad rice crops, because then hunger reduces 



SPECIAL REPOJRTS ON THE PHILIPPI]!TES. 165- 

to a truly miserable condition numbers of tbe residents of the mountains without 
other resources. 

It is not to be assumed, however, that the same causes which brought about the 
formiug of bands of robbers in former times would be revived under the govern- 
ment of the Filipinos. As a fact, such bands were dissipated during the govern- 
ment of Aguinaldo. The right to bear arms would doubtless be one of the rights 
which would be recognized under an independent government, and this would 
giA'e to each community practical means of protecting its lives and interests 
against those persons prejudicial to the same. These would tend to cease their 
evil habits or would be exterminated in one manner or another, since there 
Avould be no other alternative. The misery of the common mass which con- 
tributed and contributes now to the formation of such bands would have to be 
effectively improved through suitable legislation which would give to the poor 
facility to acquire their lands and cultivate them. 

An eloquent proof of the good disposition of the people toward preservation 
of order under normal circumstances was the organization of the bands which 
operated during the Spanish sovereignty. These were selected from the com- 
mon people of the municipalities. They performed service by day in the mu- 
nicipality and watched by night at points outlying the resident section for the 
public security. They received no salary except equipment and clothing. Their 
duties were, when occasion necessitated, though badly armed, to seek and 
pursue, evildoers, fight these, and arrest them. They successfully performed 
these duties. The men of the towns accompanied on many occasions these 
bands for such purposes. It is not less indicative of the spirit of order and 
discipline of the people that there are communities which have barely two or 
three policemen to guard the jail and maintain order. The lack of these is^ 
not felt on days of great feasts and crowds. 

The danger of disorder feared is as small as remote. 

IGNOEANCE AS A MENACE TO ORDER. 

There is pointed out as another of the grave menaces which might con- 
stitute a constant danger to order the ignorance of the Philippine masses who 
speak only one of the 15 or 16 Malay dialects, each one of which contains a 
very limited vocabulary which offers no means of communication with modern 
thought and civilization. 

We do not desire in any way to dens that there really exists among the 
Filipino people persons not educated in schools. No one laments this situa- 
tion like the Filipinos themselves — a situation due to causes altogether foreign 
to their will. Nevertheless, while it may be said that there are some illiterate 
people not prepared in the schools, it can not be said that the people is pro- 
foundly ignorant. From the fact that there are people who do not know how 
to read and write does not necessarily indicate that the community in which 
they live does not know the rights and duties appropriate to a civilized com- 
munity. 

Let us take as an example one of those rural communities of the islands far 
distant from centers of commerce and education. It is a community that lives 
pacifically, has a religion (the Christian), and practices its creed. Each indi- 
vidual constructs his home and Avorks a piece of ground and sows what is 
necessary for his living. His house is small, but he keeps it clean, as well as 
its surrounding lot. He lives from fishing or agriculture. He does not rob or 
steal or kill or molest any of his neighbors. He receives the stranger cordially 
and shares with him all the resources that his natural hospitality permits. 
He pays a teacher for his children or sends them to the public school of the 
town. He recognizes his public authorities, to whom he appeals on all occasions 
when he receives some injury or other, pays his tax religiously when required 
to do so by the agent of the municipal authority. The community scarcely 
requires police because order is very rarely disturbed. All live in the greatest 
satisfaction, without passions, without struggle, in the midst of an enviable 
harmony. 

We can not say that a community that lives thus is profoundly ignorant and 
might place in danger the security and order of the state on account of its 
ignorance. If we compare this community with other Filipino communities 
which form the municipalities and the Provinces of the archipelago and present 
the same sketch and characters, with the only difference that there are in these 
a greater proportion of instructed persons, we can not see any danger to order 
in confiding to such communities the government of their own interests. It is- 



166 SPECIAL KEPORTS ON THE PHILIPPINES. 

flattering to be able to saj^ that the truth is that the so-called ignorant mass 
of our people so unjustly treated by our critics is sufficiently instructed in its 
duties of man and of citizen, and we are certain from what occurred during 
the revolutionary period that with the independence of the country there would 
be again awakened in it that stimulus to greater progress, well-being, and lib- 
erty that collective conscience and that spirit of responsibility of which it has 
given so many and such eloquent proofs. 

Furthermore, the causes which under the past sovereignty produced the 
present condition of education in the people are sufficiently known, and likewise 
well known are the methods which should be employed to more generally spread 
instruction among the masses most needing it. It is reasonable to suppose that 
whatever government the Filipinos may have will give all possible opportuni- 
ties to all the classes of the people to educate themselves in the schools. The 
Filipino people, as has been said in another place, is glad to instruct itself in all 
branches of human knowledge. It is not necessary that it be compelled to this. 
In the official reports there is noted with true satisfaction the natural inclina- 
tion displas'ed by the Filipinos for education, the poorest families sending their 
children to school. There has been a constant increase in the number of 
children attending the public and private schools, so that in this year it may be 
reckoned that nearly 700,000 children arid youths are receiving an education in 
the different public and private schools established throughout the archipelago. 

The Philippine Assembly has always been ready to make large appropriations 
for the bureau of education, and this certainly indicates that if the country 
were independent the Philippine government would place all its interest in 
increasing and spreading instruction among the masses, not only because it 
would understand that this was its responsibility, but likewise because it would 
recognize the advisability of having the people instructed in order that the 
nation might be solid and strong. The Philippine government would be in pos- 
session of power to save a great part of the present budget destined to salaries 
end expend such savings in paying school-teachers and constructing school 
buildings in order that the progress of education might be more rapid daily 
in the islands. 

There exists, then, in our opinion no reason whatever to fear the imagined dan- 
gers that the present state of education of the people might offer to the permanent 
establishment of public order under an independent government. Above the 
subtle conventionalisms of nations which, in spite of all, have never been able to 
fix with precision and uniform judgment when a people is sufficiently educated 
to be independent or when not, it is certain that there exists here a people old 
in the practices of civilzed life, lovers of home and property, and enthusiastic 
for education and progress, obeyers of the law, all of which, far from being 
a danger to order, is its firmest and most secure foundation. 

" CACIQTJISM " AND OLIGARCHY. 

There is likewise pointed out as another obstacle to good order and the 
establishment of democratic institutions and principles the so-called " caci- 
quism " dominant in the country. There is mentioned the fact that in the rural 
municipalities of the Philippines the whole people is completely subject to the 
will of some educated person of alert intelligence living in the community, 
who knows the local dialect and who desires or knows how to excite the fears 
or the cupidity of his neighbors to organize a party to resist imaginary wrongs 
or oppression, in order to satisfy vengeance or to obtain a livelihood without 
labor. There is said in proof of this that the history of the revolution and of 
the state of disorder which followed it is full of examples in which the simple 
country people incited by the local caciques have committed the most horrible 
crimes of torture and assassination, and when the authors have been arrested 
and prosecuted they have simply replied that the caciques of the locality had 
ordered them to commit the crime. There is mentioned likewise that with 
great frequency the presidente and other officials of the town make use of 
their offices to subject the ignorant residents of their respective towns to their 
control in the sale of agricultural products. The official acts as an intermediary 
in the sale and takes the greater part of the products of the person he 
represents. It is likewise alleged that caciquism is revealed in the most 
flagrant form when the Philippine municipal officials, and even provincial 
officials, are invested with governmental power over non-Christian tribes or 
over others that are not of their own race distributed through the Christian 



SPECIAL KEPORTS ON THE PHILIPPINES. 167 

Philippine provinces. It is said that the people of these tribes ai*e victims of 
abuse and oppression on the part of such Philippine officials. 

The series of acts mentioned which show the existence of the so-called 
" caciquism " in the Philippine Islands is not truly the result solely of the 
state of education of the masses, but a natural product of the perversity of 
man of whatever time and whatever race. The instinct of profiting at the 
expense of one's neighbor or of satisfying certain passions and taking ad- 
vantages of other men who may be convinced or seduced is not only a quality 
peculiar to Filipinos, but a universal human sentiment. This instinct naturally 
reveals itself in different forms according to the condition of the various 
societies, but in one form or another it exists among all people, whether they 
are civilized or not. He who considers himself stronger will always try to 
obtain some profit if he can from the weaker whether this one be ignorant 
or not. 

The facts mentioned are not, however, very general nor are they of such 
gravity as those that occur in more civilized countries. The examples of caciques 
who have ordered the assassination or the torture of hostile persons are excep- 
tionally rare, or so little known that there has not reached our knowledge spe- 
cific cases registered in the tribunals of justice. The abuses by officials who take 
advantage of their official influence to serve as middlemen for some ignorant 
persons in the sale of their products, aside from being few, are assuredly less 
scandalous than those which are told of oflicials of independent countries who 
enter into illicit combinations to permit gambling houses or houses of prostitu- 
tion, in the profits of which they participate. 

We are not trying by this statement to apologize for these abusive acts, but 
the fact that they are committed, no only in this country but in all countries, 
although they wear different forms or aspects in each one of them, brings us to 
a conclusion, and it is this : That because this evil exists in the Philippine 
Islands is not a reason for failing to concede independence to the Filipinos. 
The belief that caciquism in the islands may constitute a grave danger to order 
is not sustained by the facts. There is nothing in the facts before mentioned 
and in those which the action of the caciques show which can not be corrected 
by the action of the courts or of the executive. -It would be therefore extravagant 
to believe that the Filipino government would lack means or sufficient resources 
to punish the abuses or the disturbances which local caciquism may occasion. 
It would not be an error to suppose that the government being in the hands of 
the Filipinos and there being established naturally greater confidence between 
the people and the government that any act of caciquism would be more promptly 
denounced and consequently punished. 

In relation to the existence of caciquism, which thrives as is believed because 
the mass of the people is profoundly ignorant, there is likewise expressed the 
idea that in case of constituting an independent government the educated mass 
which would form the government would make of this an oligarchy which would 
tend to oppress and exploit the ignorant mass. In other words, it would be a 
government of caciquism. It would not be possible to ignore this fact, that by 
the force of circumstances and in virtue of our sociological conditions, the gov- 
ernment must be in a certain manner in the hands of the most capable and 
intelligent group having knowledge of the science of government and of society. 
But far from this being an evil, if this group is to be the element favoring mod- 
ern ideas always inspired in good and in the interest of the community, if it is 
to guide the others to conduct them to the object of their aspirations for prog- 
ress and well-being through the means most appropriate and suitable to it and 
in the final analysis, it will be but the most faithful and suitable instrument of 
the will of the majority, there would be no mistake in placing on its shoulders 
the responsibility of a sovereign people. 

There is likewise sufficient evidence showing that the people are educated in 
the practices of equality and democracy ; that there will be no danger whatever 
of the interested and wicked preponderance of a determined group called 
caciquism or directing. There exists the positive and certain fact — that exactly 
the so-called caciquism group, responding to the desires of the entire body, has 
realized and is realizing the work of lifting up the spirit of the most humble 
masses, of aiding them to proceed in the road of progress and prosperity, of 
increasing the love of country and liberty. From this, one might infer that on 
establishing the Philippine government the directive group would feel certainly 
the pressure of the advantage of educating all the masses, because the first work 
of'the government would be to strengthen the nation in the interior and exterior 
and there would be recognized that public instruction is the most solid basis of 
a nation's strength. 



168 SPECIAL KEPORTS ON THE PHILIPPINES. 

BKT.ATIONS BETWEEN CHEISTIAN.S AND NONCHRISTLANS. 

The fact that there have occurred examples of abxise and oppression by Fili- 
pinos in office of persons belonging to the non-Christian tribes doeS not indicate 
a general policy, nor is it the general treatment extended by Christian people 
to the non-Christian tribes. The reference to these abuses seems to indicate 
the belief that the Christian people in their relation with the non-Christian peo- 
ple would not be disposed to give to the latter a just and liberal treatment, 
which would tend to lift them to the grade of civilization acquired by the 
Christian people. Nothing, however, can present with less accuracy the point 
of view and the intention which animates the Christian people with respect 
to those who are not so. The inhabitants of the Christian Provinces, as we 
have stated elsewhere, understand that the non-Christian tribes are a very im- 
portant and valuable factor, not only for the population but likewise for the 
defense of the common country. The variety of people which inhabits the 
islands and speak different dialects with distinct religious creeds and customs, 
are susceptible of forming a true homogeneous unit, which they now have, 
through ethical reasons, assisted by the chains of common interests and ideals 
for the objects of progress and civilization. The belief that there is a true 
rivalry and hatred between the Christian and non-Christian people has been 
almost always exaggerated ; nothing, however, is falser than this opinion. The 
simple knowledge of the non-Christian tribes of the establishment of the Fili- 
pino government in Malolos produced a distinct approximation in the ideas and 
relations of the Christian and non-Christian people, the latter having presented 
themselves spontaneously to the authorities of said government, giving it loyal 
support and recognition. There is too the fact that some Christians of Luzon 
and Visayas have established themselves in More territory or in various 
" rancherias " that live in the mountains from which the most skillful have 
succeeded in acquiring greater or less fortune. 

The true reason for the dissatisfaction and differences existing between the 
non-Christian people and the Christian people is based rather on the fact that 
the non-Christian people believe the Christians allied wath the foreign govern- 
ment, anxious to pervert them w-ith a change of their religious beliefs. But 
religious intolerance having disappeared, the principal factor which caused the 
existing differences between the two, it will not be difficult to convince the non- 
Christian people of the islands of the benefits of living under a common regime 
with the inhabitants of the Christian Provinces. We are convinced that a Fili- 
pino government is the only one that could reach in a permanent manner and 
without violence a definite understanding with the non-Christian communities of 
the islands, because the latter in spite of the differences of religion and customs, 
would not oppose, nor could they oppose, the influence of the ethnical unity and 
relationship. This circumstance gives to the Christian Filipinos the advantage 
of a better knowledge of the psychology of their non-Christian compatriots and 
teaches them the road most appropriate and the measures most suitable to 
reach the intelligence and hearts of the said compatriots and to establish with 
them the relationship which tends to consolidate national unity. 

LITTLE POLITICAL EXPEKIENCE. 

The little political experience of 'the Filipinos, acquired under the Spanish 
Government, has constantly been a theme touched upon to refuse the national 
aspirations of the Filipinos. But if it be considered that the nations, whatever 
be their race or creed of humanity, have only gained complete experience 
through direct and absolute control in the management and government of their 
interests, such argument loses a great part of its force and strength. Experi- 
ence in life and in business certainly comes in no other manner but in daily 
contact with the men or with the interests Avhicb are managed. The United 
States has not gained experience to manage the affairs of a federation, except 
since the old Britannic colonies declared themselves independent and consti- 
tuted such form of government. We are convinced that the Filipinos must 
likewise expect more complete experience to direct and administer their national 
affairs after they are independent. The Filipinos have gained, doubtless, 
greater experience than they had in the past domination in municipal and 
provincial affairs, because they have been placed face to face with the responsi- 
bilities and difficulties of practice in such affairs. Experience in the control 
of affairs which we would call national it may be said they haA^e not had dur- 
ing the present r§gime, or if they have had, it is as an experience purely theo- 



SPECIAL KEPOETS OlST THE PHILIPPINES. 169 

retical. So that if the laws which govern the present system are to continue 
permanently, the Filipinos would experience the same results which they had 
with the Spanish Government as to practical political education. 

The Filipinos acquired much more experience and education during the epoch 
of the so-called government of the Filipino republic than in any time before 
or since the American occupation. The succinct relation that we made in the 
first chapter of the provisions and regulations adopted by that government 
shows that the governmental practice of the Filipinos does not differ much from 
the experience of the old nations. This historic fact serves to demonstrate that 
political experience may be gained either by independent effort or by the ex- 
I>erience of others. 

The colonial experience of the United States has occurred only since the war 
with Spain. The political experience of American statesmen has been limited 
before this time to domestic affairs. When the American Nation, through the 
declaration of their prominent men, and in other ways, congratulates itself in 
saying that its colonial administration of the new people, subject to its domina- 
tion, has been carried on with success, we can not do less than infer from this 
the truth from our point of view that a previous practical experience is not 
necessary to a country when it shows good judgment and disposition in other 
affairs to obtain the success of an undertaking. 

We are glad to be able to say that the good sense and the good disposition 
shown by the Filipino people in adapting its life and customs to the practice 
of the civilized nations of Europe and America permit the well-founded hope 
that with this actual practical experience it will have success in its work in 
the experiment of an independent government. 

A COMMON LANGUAGE. 

The lack of a common language spoken and written in the relations of the 
Filipinos among themselves has been likewise mentioned a number of times 
in discussing the problem of our independence. It has caused the teaching of 
English in the schools and its diffusion by all possible means among different 
people of the country, with the object that the Filipino people may acquire not 
only a common medium of communication but likewise the advantages that the 
possession of the English language would give for commerce and the study of 
free institutions. 

The existence of various dialects within a single country is certainly an im- 
pediment to easy communications, and to the communication of thought and 
word between men of the same country, but the fact that there exists a like 
condition in many independent nations of old Europe makes us believe that it 
is not an indispensable condition to the independence of nations. 

The number of dialects of the country, and the importance of the difficulties 
which this variety of dialects creates has been much exaggerated. But to be 
accurate, we must say that properly there are three dialects : One which domi- 
nates in the north, that is the Ilocano ; another that dominates in the center, 
that is the Tagalog ; and another that dominates in the south, that is the Visayan. 
The other dialects are varieties of one of these three principal ones, so that 
after a period of a few weeks in a place the Filipinos may speak and under- 
stand the dialect of the locality. 

Obstacles to the Indefinite Retention of the Islands Pkeparatoey to their 

Independence. 

The present policy was explained by President Taft in his special report as 
Secretary of War to the President relating to the Philippine Islands, dated the 
23d of January, 1908, as follows : 

" I do not see li,ow any more definite policy can be declared than was de- 
clared by President McKinley in his instructions to Secretary Root for the 
guidance of the Philippine Commission, which was incorporated into law by the 
organic act of the Philippine government, adopted July 1, 1902. That policy 
is declared to be the extension of self-government to the Philippine Islands by 
gradual steps from time to time as the people of the islands shall show them- 
selves fit to receive the additional responsibiliy, and that policy has been con- 



170 SPECIAL, EEPOETS ON THE PHILIPPINES. 

sistently adhered to in the last seven years now succeeding the establishment 
of civil government. 

* * * * H= * H= 

" It necessarily involves in its ultimate conclusion as the steps toward self- 
government become greater and greater the ultimate independence of the islands, 
although, of course, if both the United States and the islands were to conclude 
after complete self-government were possible that it would be mutually bene- 
ficial to continue a governmental relation between them like that between Eng- 
land and Australia, there would be nothing inconsistent with the present policy 
in such a result. 

****** H: 

"Any attempt to fix the time in which complete self-government may be con- 
ferred upon the Filipinos, in their own interest, is, I think, most unwise. The 
key of the whole policy outlined by President McKinley and adopted by Congress 
was that of the education of the masses of the people and the leading them out 
of the dense ignorance in which they are now, with a view to enabling them 
intelligently to exercise the force of public opinion without which a popular self- 
government is impossible." 

This policy nevertheless has not yet been sanctioned by Congress in all its 
parts. Congress, which is the power in which resides the regulation of aftairs 
referring to the Philippine Islands, has until the present refused to express its 
opinion with reference to the future political status of the islands. 

CONTBAEY OPINIONS AND POSITIONS. 

This indefiniteness as to the political future of the country results in two con- 
trary movements of opinion as well among Americans as among Filipinos — some 
who believe that independence must be conceded after some years, and others 
who believe that it is never to be conceded. The doubts which arise from this 
state of indefiniteness result in all and each one working without a fixed direc- 
tion, producing a lack of general agreement, which is far from favoring the 
progress and well-being of all the residents of the islands. In the attitude, idea, 
and actions of many Americans in the islands appears to be indicated the con- 
viction held by them that the Filipinos are not to be, nor will ever be, inde- 
pendent ; that the American flag will never be lowered there, where it has once 
waved. So that, notwithstanding the repeated declarations made by high author- 
ities in the United States that the government implanted in the islands is for 
the interest and benefit of the Filipinos, there are many American residents of 
the islands who conduct themselves in the contrary sense, animated apparently 
with the idea that the government has been established here exclusively for 
their interest and benefit. It is observed, for example, .that there are few Ameri- 
cans of those who come to the islands who have endeavored to intimately know 
the Filipinos or to gain the friendship of the latter by socially and personally 
uniting with them, but many of them have displayed egotistic and personal 
motives; sometimes publicly indicating that the Americans have come to the 
islands to better their purses and interests, and at other times depreciating the 
association of the Filipinos, or in a thousand ways treating them depreciatingly. 
Few of the Americans who deal with the Filipinos can hear with calmness the 
demands of the Filipinos for their independence, but many of them laugh jokmgly 
at it as at a thing impossible. On the other hand, the Filipinos who accept in 
good faith and sincerity the carrying out of this policy, in view of those examples 
given by the Americans, can with difficulty induce a ray of hope into the mmds 
of their compatriots, and not a few come to establish in their minds the belief 
that the American Government is not disposed to specify to-day or at any time 
the political aspirations of the Filipinos. 

HARMONY AND GOOD UNDERSTANDING MADE DIFFICULT. 

From this naturally come many difficulties which do not contribute to create 
that healthful harmony, that close relation, between Americans and Filipinos 
which is necessary for the fulfilling of the mission which the American people 
desires to fill with respect to the natives of the islands. The American Govern- 
ment needs the cooperation of the people, needs the support of the Filipinos 
to convince the country as to the generous and altruistic designs which have 
moved it to remain in the islands, but every day the Filipino politicians are 
denounced to the government as propagators of evil doctrines ; as obstacles to 



SPECIAL REPORTS ON THE PHILIPPHSTES. 171 

the execution of the plans of the government ; as hostile to the sovereignty and 
mission of North America in the islands ; in general, as the most dangerous 
enemies of its own people. It would even seem that there is an effort to make 
the government believe that it should suspect all Filipino politicians; that ear 
should not be given to their proposals and complaints ; that it should entirely 
ignore them or do the contrary of what they ask or propose, because in this 
manner they might administer more justly and efficaciously the interests of the 
people in these islands. In this manner the labor of the government for a 
closer union with the people is strongly embarrassed on the one side by the 
voice of a portion of the American press which clamors constantly against the 
policy and the Philippine politicians, and on the other side by the voice of a 
portion of the Filipino press which, rendered hostile by that, considers it neces- 
sary to take the defense of the Filipinos, censuring the Americans, and making 
them responsible for the violation of its own principles and policy in the islands. 
There is observed on this account frequently a low struggle of individuals 
whose judgments are engaged in presenting an antagonism of interest between 
American and Filipino people, relaxing the bonds of cordial and mutual intelli- 
gence which the government extremely desires to see established. The efforts 
of men of good faith of both people are always directed in avoiding the break- 
ing out of this struggle, of the reestablishing in a short time courtesy and 
mutual consideration. The frequent injury that this occasions in the cordiality 
of the relations of the Filipino people and government is great. Meantime, the 
government can not remain aloof from this struggle, and as it is composed in its 
majority of Americans it is obliged to act in accord with the dominating spirit 
in the American community. From which, in their turn, the Flipinos complain 
and form among themselves the opinion that the government does not listen to 
the voice of the Filipinos, but gives consideration only to the interests and 
satisfaction of the Americans. 

DIFFICULTIES IN ADMINISTRATION. 

The difficulties of administering the interests of a completely different race 
are revealed by the fact that the government judges many times very errone- 
ously the attitude of the people and its representatives, and in its turn the 
people misunderstands the intentions and dispositions of the government. In 
1902 there appeared for the first time since the American occupation cholera in 
Manila and the surrounding provinces. The government was obliged to adopt 
precautions and measures to protect the health of the inhabitants. There was 
put in force various regulations drawn up to avoid the propagation of the evil 
and there was increased the number of the sanitary corps who had to carry 
into effect said regulations. The people was not accustomed to the methods 
adopted and believed itself persecuted by the representatives of the govern- 
ment and refused, in many cases, to submit to the methods prescribed by the 
official science. The violence in the execution and enforcement of such methods 
resulted in the hiding of cases and to secret burial of corpses in such cases. 
The native press criticized some of the regulations emanating from the gov- 
ernment and the manner of putting them into execution. The government 
understood then that the representatives of the press were impeding the meas- 
ures for the repression of the evil until the knowledge of some facts made the 
government understand the necessity of reforming the processes, and it then 
took advantage of the cooperation of the Filipinos themselves in the sanitary 
measures adopted from which were obtained better results. In 1904 the con- 
stabulary was the object of severe criticism on the part of the native press 
for the commission of abuses and other excesses in the performance of its 
•duties. The government saw in such criticisms as always a spirit of party 
and hatred on the part of those who criticized the government and its institu- 
tion. It believed that these sympathized with and aided the ladrones who dis- 
turbed peace and order. The publication of certain facts in El Renacimiento 
gave rise to a prosecution of this newspaper. The evidence in the case proved 
the commission of acts of violence and torture by officials of the constabulary^ 
The court acquitted the editors of El Renacimiento and since then the appoint- 
ment of the chiefs and officers of said corps are made with greater care and 
there has been observed a higher standard of efficiency in the service of the 
corps and better cooperation of the people with its officers and men. 

These facts serve to illustrate the difference of judgment which always 
appears when a people has not a government composed of men of its own race 
that can understand clearly its method of life and peculiar habits. This lack 



172 SPECIAL REPORTS ON THE PHILIPPINES. 

of comprehension by a foreign government, aggravated bj^ the difference of 
language, contributes not a little to the fact that the people view with doubt 
or lack of conlidence the acts of said government. This government needs 
the faith and the complete confidence of the people in order that every one of 
its acts should be accepted by the people with the satisfaction and certainty that 
it is to better their interests and make them happy and prosperous. 

Great principles or great men are not so necessary in order that the adminis- 
tration of the interests of a people attain the advancement or well-being of the 
pec'ple, but it is absolutely necessary that the people have entire faith in those 
to whom are confided its interests, because without that faith every effort of 
intention or of act that those who govern take will encounter passiveness and 
iudift^erence on the part of the people. In consequence of this our goverment 
attributes at times to ignorance or lack of understanding of its own interest 
tlie indifference which the people displays toward many good acts or laws, 
made in its favor, as, for example, the homestead law. 

POLITICAL ECONOMY. 

These symptoms of doubt manifest themeselves markedly in the consideration 
of economic subjects. All Filipinos believe necessary the development of the 
natural resources of its to-day unproductive soil. They understand the necessity 
of the assistance of foreign capital, but they complain at the same time against 
the policy of selling great tracts of land to corporations, against perpetual 
franchises for railroad companies, and against the predominance of corporations 
and commercial interests ; and this, which appears a very grave confusion of 
ides, has its origin in the rooted belief that the future of the people is threatened 
by the invasion of that capital which, once rooted here, will be opposed, when 
the moment arrives, to all change of sovereignty, because it would not believe 
itself sufficiently secure and protected except under its own sovereignty. If 
this government were the image and work of the people, these fears would not 
be felt and the cries of protest of the present would be converted into cries of 
praise and blessing, because the people would have entire faith and complete 
security that its interests and its future in the hands of such government would 
be under the protection of guaranties such as would permit the development 
of native capital on equal terms with that from abroad. 

It is believed generally among the Filipinos that this government has given 
no attention to favoring with some stimulus the development of Filipino capital 
and has used all its efforts in bringing capital from without for the exploiting 
of the material riches of the country. They feel that this government, which 
has been established for the happiness, peace, and prosperity of the inhabitants- 
of the islands according to the text of the instructions Of McKinley to Secre- 
tary of War Root, leaves the Filipinos abandoned to their fate in the develop- 
ment of their economic interests ; does not extend its protection to native 
capital, whether interesting said capital in the formation of new industries for 
which the soil offers rich material, there being given some privileges by law, 
or authorizing facility to Philippine producers and merchants in the prosecution 
of their enterprises, or inducing the companies that are formed to admit Philip- 
pine capital, for the agricultural and mining exploitations. The people observe 
that all the preferences and stimulus of the government is kept for foreign 
capital and that the government leaves it unprotected, and it is not to be 
wondered at that the people feels a profound neglect and that it sees itself in 
advance beaten in an unequal economic competition and loses faith in the 
benevolence of the intentions of the government. In the practice of the pro- 
fessions it observes likewise that natives of the country are being relegated to 
the background and that the business is controlled by Americans, and that, 
as in the case of the surveyors, there have been efforts to deny to the latter 
the practice of the profession in what i-elates to an office of the government,, 
and in its profound logic the people have reason to believe that the government, 
far from favoring their economic condition, restrains them without, perhaps, 
.wishing to do so. 

The people are convinced that they comply with all their obligations to the 
government ; that in spite of their poverty they pay annually in taxes f"30,000,- 
000, with the object that the government may provide all measures and re- 
sources to improve the economic conditions of the country. The Philippine 
people nevertheless finds itself in the same condition of economic crisis that 
prevailed under the past domination. Failures to pay and requests for defer- 
ment of payment of taxes and the sale of property for insolvency evidence the 



SPECIAL REPORTS 01^ THE PHILIPPINES. 173 

deplorable state of the economic interests of the Filipinos. The existence and 
increase of the same pernicious amusements that created such poverty during 
the Spanish Government and which were abolished during the short period of 
the revolutionary government necessarily accompany such a condition. The 
increase of houses of usury and loan tend to aggravate the situation. This, 
which is so evident to the people, is nevertheless not so to the government. 

The government believes that the people complain as a matter of routine or 
through ignorance of what must be paid for the necessary public services. The 
government shows that the commerce of importation and exportation, which 
measures the riches of a country, is increasing yearly and shows likewise that 
the rate of contribution per capita is considerably lower than in any civilized 
country. From this it results that the people do not understand the govern- 
ment nor the governm-ent the people, and the two doubt and mistrust each other. 

In such a state of relations, that are the natural consequence of the present 
regime, the faith which has placed America in the administration of the aifairs 
of the Filipinos for the happiness, peace, and prosperity of the latter will never 
see itself realized. If there is taken into account, in addition, other organic 
defects in the present regime which prevent the development of the individual 
and national aptitudes of the people of the islands in a state which is supposed 
to be one of preparation, the claims of the Filipinos for the enjoyment of an in- 
dependent government with the object of assuring its own progress and its final 
well-being would be far more justified. 

UNSUITABLE LEGISLATION. 

The gravest defect of the present system is founded entirely in the lack of con- 
fidence in the capacity of the natives, who are prevented from developing them- 
selves by their own methods and are forcibly subject to an exclusively American 
type. Little effort has been placed so that the Filipinos by themselves might 
iorm the legislation with reference to the conditions and customs of the people. 
The legislation now in force has been constructed on purely American lines wath- 
out exact knowledge of the character and peculiarities of the inhabitants of the 
country. Such legislation is not the work and product of circumstances and con- 
venience of this people, but a copy and imitation of laws taken from a people with 
different characteristics and a distinct type of civilization. The Philippine As- 
sembly was created after the construction of this legislation, and whatever effort 
to reform it in its foundation is absolutely nonrealizable through the opposition, 
at times blind, of the other branch of the legislature. It thus happens that some 
laws are of difficult application to the people of these islands. 

LITTLE PRACTICAL EDUCATION. 

In the executive branch is yet more notorious the lack of confidence which is 
the base of the system. The central axle of the administrative organism revolver 
in such a way that it leaves to the Filipinos no opportunity for practice in the 
conduct of public affairs through means of direct contact with the methods of 
action and their difficulties. If it be considered that the basis of the policy fol- 
jow^ed in the Philippine Islands is the preparation of the Filipinos- for the exer- 
cise of the powers of an independent government, it is not seen how under the 
present system such a result may be obtained. For example, nearly all the chiefs 
of bureaus are Americans, as are their principal assistants and local agents ; 
that is, all those who go to form and direct the plans for the execution of the 
laws. Few Filipinos, if there are any, can by virtue of their offices take part in 
the determination and regulation of these plans. The best education would be 
that which places the Filipinos on the ground of reality and places them in con- 
tact, by virtue of the duties of their offices, with a knowledge of the methods and- 
practical difficulties of the public service. 

INEQUALITY IN THE CIVIL SERVICE. 

From this comes the constant demand of the natives for the Filipinization of 
the public service, but the bureaucratic spirit which is developed necessarily 
among the colonizers in a colony tends to neutralize the results of this demancl. 
The slow course that the insular government is adopting to place Filipinos in 
the offices of high salary and responsibility, notwithstanding the merit and the 
efficiency demonstrated in several years of service, is the result of constant em- 



174 SPECIAL EEPORTS ON THE PHILIPPINES. 

ployment of Americans who in a large number are always awaiting every occa- 
sion to occupy the vacancy or promotion of other Americans. The Filipinos are 
placed necessarily in their subordinate and assisting posts, and even when many 
of them are really prepared, by experience gained through long service in the office 
and perform the duties performed by the Americans, only rarely and by accident 
are they promoted to the places of the latter. 

The same treatment is not accorded to Americans and Filipinos in the civil 
service. In practice there appear to govern certain rules for Americans, and 
others for Filipinos. The salaries are not the same for one as for the other. 
The Americans are promoted more rapidly than the Filipinos in the same office, 
and the cases of demotion of the Filipinos are frequent. The merit and efficiency 
of the Filipinos are rated with greater rigor than those of the Americans, as 
well as likewise their failings in the service. All this is evidenced manifestly 
in the material fact that nearly all the posts occupied by Americans since the 
establishment of civil goveniment continue in possession of the Americans. 

The increase of Filipino employees each year is only apparent. There is 
not a chief of office who does not place annually in his estimate for expenses 
a greater sum than in the preceding year, and with this augment are created 
some inferior posts that are filled by Filipinos. The number which is set forth 
in the reports of the civil service is the total, and it shows an increase in the 
number of Filipino employees but not a diminution in the number of Americans. 
If the American policy in this matter in establishing the civil service is to 
educate the Filipino in the sense of responsibility in the government, the practice 
followed, instead of favoring this policy, paralyzes it in its educative effects 
and as a result tends to form a sort of privileged class composed solely of 
Americans. 

GOVERNMENT OF THE NONCHEISTIAN PEOPLE. 

Another grave fault of the present system is having followed the policy of 
maintaining a complete separation between the Christian and non-Christian 
people. The different tribes which inhabit the mountains of the north of 
Luzon and the Mohammedans of Mindanao must form part of the Filipino nation 
as belonging to the same territory and originating from a single ethnical trunk. 
The separation between these only tends to foment a lack of common interest, 
which creates in its practical results unfounded misunderstandings between 
them. There should be inculcated in the people of said tribes the idea that this 
is a Filipino government, and on that account they should become accustomed 
to see Filipinos at the head of the governments instituted among themselves. 
The concept which actually is imbued in them is that they must be protected 
against the alleged abuses of their own brothers — the Filipinos. If the Filipino 
nation is to govern alone in the future and those who constitute such tribes 
have to form a part of said nation, it is necessary to have them look on the 
Christians as brothers, as fellow citizens with whom they are to live and are to 
be united in a community of culture and aspiration. The Christians, as we said 
elsewhere, can not be assumed to be without all practical sense ; that does 
not appreciate their interest in civilizing those non-Christian tribes that are 
an important factor as well for the population as for the defense of the common 
country. There would certainly not be lacking Christian Filipinos of demon- 
strated executive skill who might govern said tribes in accordance with their 
interest and well-being. The present political and administrative organization^ 
which separates the Christians from those that are not does not tend to the- 
preparation for an independent Philippine government, but to prepare for the 
latter in its day difficulties in its relations with the inhabitants of said localities. 
If the Philippine Assembly could have jurisdiction over the territory occupied 
by the non-Christian tribes and the Moro Province there would be made evident 
the reasonable interest that the Christian people feel for the progress and well- 
being of the non-Christian people. 

Conclusion. 

The Philippine Islands were acquired by the United States by virtue of the 
cession made by Spain through an indemnization of $20,000,000 in accordance 
with the treaty of Paris. On the date that this treaty was signed a great part 
of the Philippine territory was in power of a government organized by the Fili- 
pinos. The organization of this government was made with the knowledge, con- 
sent, and moral support of the Americans. On the opening of the Spanish-Ameri- 



SPECIAL REPORTS ON THE PHILIPPINES. 175 

can war, Aguinaldo, who was considered the leader of the insurrection against 
Spain in 1896, came from Hongkong in an American transport of war with the 
object of reopening tlie revohition against Spain, having been induced to be- 
lieve that he might reckon on the aid of the American forces. Although he 
made no use of the offers that were made to him, practically the attitude of the 
Americans and the relations that Aguinaldo maintained with them created the 
impression that he might consider them as allies. For some time the launches 
and steamers that were at the service of Aguinaldo displayed the Filipino flag 
and were not prevented from circulating in the Bay of Manila and some Prov- 
inces to carry forces and orders to Aguinaldo. 

The 13th day of August, 1898, the city of Manila surrendered and Gen. Mer- 
ritt, as commander of the American forces of occupation, published a procla- 
mation, in one of whose paragraphs he said : That he had not come to the 
islands to take a piece of territory. From the date mentioned before and until 
the 4th of February, 1899, the Filipino government maintained cordial relations 
with the military troops of North America, and all of the differences were regu- 
lated through official communications of the representatives of the two gov- 
ernments. 

These facts are mentioned with the object of showing that the persistency of 
the Filipinos in being independent is bound up in the recollections of that short 
period of their past in which, associated with the Americans, they threw down 
the secular power of a sovereignty and experienced the satisfaction and happi- 
ness of governing by themselves their interests and their future. Then they 
understood how satisfactory and sweet to the citizens is the yoke imposed by 
the power of its own laws and the government by men of its own race, and 
how close and loyal is the cooperation which exists between people and the 
government to better the interests of the country and to enter resolutely and 
Avithout embarrassment into the wide ways of human progress. Then the 
Filipinos abandoned all the vicious practices which the former sovereignty had 
extended over all the masses and recovered the good qualities which people 
free from all yoke possessed. This moved the Filipinos to resist with all their 
force the new American domination, and to submit to it only when they fully 
understood that they might be independent in a more or less short period. The 
efforts of the Filipinos in defense of that government, the blood which its sol- 
diers shed, and the money which was employed in the service of the Filipino 
flag, recalls to them constantly that short period of its happiness and makes 
them consider the present as a temporary situation which they desire to ab- 
breviate as much as possible in order to acquire the satisfaction of their na- 
tional ambitions and their intentions of elevation and enrichment of the country. 
They wish to consider that the American people have been guided providentially 
to these islands to save its people from oppression ; they recognize that the 
American people has borne itself with liberality toward the Filipinos after the 
latter had been conquered ; but they believe at the same time that if there ex- 
isted the providential designs, these have been completely realized ; that after 
twelve years that North America has governed these islands under its flag 
and has made clear to its inhabitants those theories and practices of a free 
people, the Government has terminated its mission with honor and glory for 
itself in these islands and may confide the government to the Filipinos with 
complete security for the interests of the latter and to all those that live in 
the country. The Filipinos at all times have shown a broad spirit of progress, 
a high interest in assimilating all ideas and practices of civilized people, and 
are not doubtful that they will operate in accordance with those ideas and 
practices on occupying their position among the nations of the earth. 

For all these reasons, Mr. Secretary, we respectfully charge you to be the 
interpreter of the feelings of the Filipinos to President Taft, to whom we desire 
to transmit a copy of this document, and to the American Congress, to each 
one of whose members we likewise desire to transmit copies of the same. 
Respectfully, 

The Executive Centee or the Nacionalista Pakty. 
By Sergio Osmena, President. 
Certified : 

Maximino Mina, Secretary. 



Appendix D. 

[Translation.] 
Memorandum from Both Political Parties. 

Manila, Septeinher J, 1910. 
Mr. Secretary : We have the honor to send attached hereto a memorandum 
that contains, in synthesis, some of tlie subjects of which we treated extensively 
in our conferences witli you. On these subjects the two Philippine political 
parties, the " Nacionalista " and the " Nacional Progresista," are in complete 
accord, and the executive committee of said parties have authorized and 
ordered us to submit the present. 
Allow us, Mr. Secretary, to be, 
Very respectfully, yours, 

LA.TOS, 

Fresklent Nacionalista Party. 
V. SiNGSON Encarnacion, 

President Progresista Party. 
Hon. Jacob McG. Dickinson, 

Secretary of War of the United States. 



[Translation.] 
WE NEED A constitution. 

Whatever may be the ultimate and definite political status of the country, 
and whether independence come now or later, it is evident that the Philippine 
people need a constitution right now. Not to make this an ultimate aspiration, 
but in order to obtain immediately and by means thereof a safeguard for the 
rights and liberties of the people. 

A fundamental law, enacted by the people, has in all times been a supreme 
necessity among all free peoples. As Lord Bryce says, the constitutions of the 
States are the most ancient documents of the political history of America ; they 
are the continuation of the " royal colonial charters " under which they estab- 
lished their different local governments, subject to the authority of the British 
Crown and ultimately of the English Parliament. 

In reality there exists no guaranties for the people, or true limitations to 
power unless said people enacts its own constitution. 

" The Constitution is an agreement of the people in their individual capacity 
reduced to writing, whereby they establish and fix certain principles for their 
own government." (State v. Parkhurst, 9 N. J., 422.) 

" The theory of our political system is that sovereignty ultimately rests in the 
people, from whom all authority emanates." (Cooley.) 

Constitution is " the fundamental law or basis of government." (Story.) 

" The supreme, original, and written will of the people acting in their highest 
capacity, creating and organizing the form of government, designating the differ- 
ent departments and assigning to these their respective powers and duties and 
obliging them to act within their respective spheres, this is the Constitution." 
(State V. Cox, 8 Ark., 436.) 

Under the Constitution we want to put into effect, among others, the following 
purposes, which we set forth luider separate headings, inasmuch as each one of 
them constitutes a matter so important and complete that we invite the attention 
of the Secretary of War to each and every one thereof : 

A COMPLETE DECLARATION OF RIGHTS MADE BY THE PEOPLE THEMSELVES. 

All the people of all countries have always been compelled to seek safeguards 
for their rights and gaiaranties for their liberties. Therefore the declaration of 
rights constitutes the principal part of a constitution. ^ 
176 



SPECIAL REPORTS ON THE PHILIPPINES. 177 

" The petition of English rights in the year 1688 was historic and retrospective ; 
the declaration of Virginia comes directly from the heart of nature and pro- 
claims the principles of government for all future time." (Cooley.) 

" The American Bills of Rights desire not only to formulate certain principles 
of political organization, but above all they define the lines of separation between 
the State and the individual. The individual does not, according to them, owe 
to the State, but to his own nature, as a subject of law, the inalienable and in- 
violable rights he has." (Jellinek.) 

EXTENSION OF LEGISLATIVE POWEKS. 

The reservation by Congress of many legislative powers that up to the present 
time have not been granted to the Philippine Legislature is a serious disadvan- 
tage to our interests. To cite no other cases we will invite attention to the lack 
of a naturalization law. This law is most important and its approval should not 
be delayed a single instant. 

SEPAEATION OF POWERS AND INDEPENDENCE OF THE JUDICIARY. 

The extraordinary situation that naturally followed the war having ceased, 
we do not see how the present system can continue longer, one that puts in the 
hands of one or a few men all the powers of the State. Several centuries 
have already passed since the constitutional charters were inaugurated by the 
division of powers. " If the individual himself," says Montesquieu, " can make 
the laws as delegate of the nation, to apply them as a judge and execute them 
as a sovereign, this man has despotism in his hand." 

" The consolidation of all the legislative, executive, and judicial powers in the 
same hands, whether of one, several, or many, and either by hereditary right, 
usurpation, or election, may with justice be called the best definition of 
tyranny." (Madison.) 

That the judiciary should be independent is something that can not be ques- 
tioned. 

" There is no liberty if the judiciary is not separated from the legislative 
and executive power." (Montesquieu.) 

AN ELECTIVE SENATE. 

From the experience that has been gained with the establishment of the 
Philippine Assembly, there is now no reason why the powers of the people may 
not be extended to a complete legislative control through the creation of an 
elective senate. 

Only thus, acknowledging in the people the right of representation, in the 
house (camara popular) and in the senate, can the interests of the said people 
be adequately maintained. 

Moreover, there is need for reorganizing the public services, simplifying them, 
and at the same time making them more efficient, seeking more economy ; and 
this task is little less than impossible to accomplish unless there is a senate 
elected by the people. 

There are, on the other hand, certain powers that pertain to the smallest 
subdivisions of the government which are now attributed, with no advantage 
to anyone, but with injury to all, to the central government. We want more 
autonomy and less centralization in the local life, in order to develop and not 
restrain the initiative ability of the people, and this purpose can with difficulty 
be carried into effect if the powers of the two chambers are not derived from 
the people. 

EXTENSION OF THE POPULAR LEGISLATIVE POWEE THROUGHOUT THE ARCHIPELAGO. 

The sentiment is unanimous among the Philippine people that the recognition 
of our national independence does not come burdened with the disastrous 
mutilation of our Philippine territory. 

_ While it is not reasonable to deprive the assembly of the exercise of legisla- 
tive powers over those portions of the Philippine territory, whether or not 
occupied by Christians, but inhabited all about by people related to our race, 
and whose needs and feelings we must necessarily be acquainted with better 
than outsiders, the anomalous case is presented of Filipinos in considerable 
numbers living in these portions of the territory who do not enjoy the civil 

117376—19 12 



178 SPECIAL EEPORTS ON THE PHILIPPINES. 

and political riglits accorded to other Filipinos living in other portions of the 
same territory. The Supreme Court of the United States, ruling upon the 
nullity of certain laws of the commission depriving the non-Christian tribes 
of the benefits of the law of registration of property and of the law of public 
lands, takes as a basis that the principal object " in the internal administra- 
tion of the Philippine Islands is to do justice to the natives and not to exploit 
their country for private gain," and that the guaranties and protection pre- 
scribed in the organic law of the 1st of July, 1902, are made extensive to all, 
for it is hard to believe that the Government of the United States would be in 
a condition to declare that the phrase " ^ny person" (in article 12 of the 
organic law cited) does not include the inhabitants of the Province of Benguet- — 
that is, inhabitants belonging to non-Christian tribes. 

We judge this restriction of the assembly in its legislative tasks over Minda- 
nao and the non-Christian tribes is the effect solely of a sad prejudice. The 
fact is that in those regions no Christians have settled save 60,000 Filipinos, 
and granting this is true the aspiration to participate in the government of those 
portions of our national territoiy is only sensible and just. We mean by this 
that there is no question of absorption of that government on the part of the 
popular element, but a simple participation that can not be denied without 
trampling upon and ignoring the incontrovertible principles of equity and 
justice. 

In conclusion, this intervention in the management of the affairs of Minda- 
noa and the non-Christian tribes is sought because nearly a million dollars in 
the Philippine treasury coming from general taxation of the people is invested, 
without consent or intervention of said people, in and by the government of 
the Moro Province and non-Christian tribes. 

" That maxim that has been familiar to every intelligent person and for many 
generations that the taxpayers are the ones to enact the law of taxes that 
must be paid" (Cooley) implies that the revenues collected by virtue of said 
laws and imposts must be expended by and for the benefit of those who paid 
them. 

Moreover, there has been talk, in order to sustain the present anomalous 
administration of the Moro Province and the non-Christian tribes, of a supposed 
antagonism between the Philippine Christians and these non-Christian tribes. 
If given opportunity, we might demonstrate with satisfaction that this antag- 
onism does not exist. But without being prophets we may say that unfortu- 
nately such antagonism will arise if we continue an administration that results 
in making men who live upon the same soil become not only not brethren, but 
probably enemies. By not favoring our contact with the non-Christian tribes 
or Moros, but completely isolating us from them, it is not difficult to sow among 
them those ideas that sooner or later will create distrust, hostility, and enmity 
toward the Christians. 

IMPEACHMENT. 

It is important to institute some procedure whereby high officials of the gov- 
ernment may be held answerable, and the separation of powers and the inde- 
pendence of the judiciary present a corollary that in certain grave cases said 
officials may and must answer for their conduct before bodies designated 
by law. 

There are several other matters that we wish to include in this memorandum. 
These are : 

CHINESE IMMIGEATION. 

Even though we are assured that Congress in its wise enactments will not 
alter the prudent policy established relative to Chinese exclusion, we believe, 
nevertheless, that we should enter here the unanimous feeling of the country 
in favor of this policy. 

SALE OF PUBLIC LANDS AND THE FRIAE ESTATES. 

Being desirous of implanting among ourselves the idea of a true democracy 
and providing against difficulties that, having occurred elsewhere, may occur 
among us in time to come, we resolutely set ourselves against a wider extension 
of the lands of public domain that may be sold to private parties or corpora- 
tions. We also wish that such opinion prevail in connection with the sale of 
the friar estates. The intervention of the government in these estates never 
was understood to be the business, more or less lucrative, of said government. 



SPECIAL EEPORTS ON THE PHILIPPINES. 179* 

but to be a sacred duty, to relieve the Philippine land tenants of the difficult 
position they occupied in the past. 

FILIPINIZATION OF THE PUBLIC SERVICES. 

While many of the questions Ave submit in this memorandum are, in the last 
analysis, within the province of Congress, the point enunciated in this para- 
graph is completely in your hands, and with all respect and most earnestly we 
beg that it be justly and promptly decided. 

We might enter upon a lengthy dissertation, which, without lack of data or 
facts, might be sufficiently strong to support our claim ; but we believe it 
unnecessary to insist upon it if we keep in mind the obligations themselves 
that, by virtue of definite statements, the Governm-ent of the United States has 
assumed. If President Roosevelt said that his idea was to erect a Philippine 
government of Filipinos, assisted by Americans, and President Taft declared-, 
that the Philippines must be for the Filipinos, from President McKinley came 
the following emphatic words, that are now fundamental precepts in virtue of 
their incorporation into the act of Congress of July 1, 1902. 

McKinley said " * * * that wherever officers of more extended jurisdic- 
tion are to be selected in any way, natives of the islands are to be preferred,, 
and if they can be found competent and willing to perform the duties they 
are to receive the offices in preference to any others." 

It is not our purpose to recommend in the proposition that those efficient 
Am ericans should immediately be deprived of the positions they are now fiUing^ 
but at the same time we do not see why, as the Filipino becomes competent to 
fill posts of greater responsibility, vacancies that occur are not filled by 
Filipinos. 

Lajos, 
President of the Nacionalista Party. 
V. SiNGSON Encaenacion, 
President of the Progresista Party^ 



Appendix E. 

[Translation.] 

Message of the Populak Nacionalista League or the Philippines. 

Manila, P. I., August 29, 1910. 
Hon. Jacob M. Dickinson, 

Secretary of War of the United States of North America, Manila, P. I. 

Honorable Sir: The undersigned, Filipino citizens, wlio compose the board 
of directors of the Popular Nacionalista League, a political party which is 
Avorking by legitimate means to obtain the immediate independence of the 
Philippines, pray of the Secretary of War of the United States, Hon. Jacob M. 
l")ickinson, that he recommend to the President and the Congress of the LTnited 
States of North America that these two high powers of the great American 
Republic concede to us immediate independence, as the only means of making 
happy the people of the islands, according to the petition made by our Resident 
Commissioner in the United States, Hon. Manuel Quezon, to the American 
Congress. 

This petition is based on the following reasons : 



Historical Antecedents. 

The United States granted immediate independence to the little island of 
Cuba witliout any reason or cause other than the historical veneration of the 
American people for the inalienable rights of any people to obtain for itself 
its own happiness, and to establisli a government derived from the consent of 
the inhabitants ; and, moreover, because the United States has seen the Cuban 
people struggle resolutely against Spain, sacriiicing life and fortune to obtain 
their independence. Therefore, the Filipino people, who are ten times greater 
than Cuba in population, territory*, and resources, supporting themselves upon 
the rigorous logic of this altruistic action of America with respect to Cuba, 
consider themselves entitled to receive from the United States the same generous 
■concession of independence, because the Filipino people, as such people, have 
the same inalienable rights to obtain for themselves their own happiness, estab- 
lishing a government derived from the consent of the Filipinos ; and, moreover, 
because the Filipino people also struggled against the same Spain to obtain their 
independence, with more boldness, perhaps, than Cuba, in view of the fact that 
they began their struggle for independence without arms other than their bare 
liands, their bolos, and their faith in the ideal, succeeding, nevertheless, in 1898, 
in vanquishing the Spaniards in noble conflict, to the point of being able to 
•establish in the capital at Malolos their own independent national government, 
in the face of all of the squadrons and all of the consuls of the greatest nations 
of the world, including America, represented by Admiral Dewey, although at 
a cost, doubtless, of thousands of lives and the blood and fortunes of her most 
noble sons, as is well known. 

II. 

Economic Resources. 

According to the census of 1903 of the Philippines (Vol. IV, p. 429), the total 
value of the property, real and other, of the Filipinos amounted to ^622,245,719, 
Philippine currency, which, in imports and exports alone, produced the amount 
of ^=57.343,808, Philippine currency (Philippine census, p. 16, Vol. IV). The 
value of exports and imports having increased to, in the fiscal year 1908-9, the 
.enormous sum of ^=70,000,000, according to recent statistics of the Philippine 
180 



SPECIAL, EEPOETS ON THE PHILIPPHSTES. 181 

customs administration, it follows, logically, that the property of the Filipinos 
has increased to double that of their first value of ?=622,245,719, and, therefore, 
it is hoped, with all assurance, the increase in the economic resources of the 
Filipino people will each time be greater, thus assuring an increase of the 
public taxes such as to satisfy the greatest needs of an independent government. 

III. 

MoEAL AND Social Condition. 

The Filipino people loves God above all things, without fanaticism or intol- 
erance, as illustrated by its different religious cults, as carried forward by each 
church, sect, or confession, amidst the most perfect order. And it also loves its 
neighbor as itself, as evidenced by the small number of Filipino criminals, which 
is less than 8 for each 10,000 inhabitants, while in the United States of America 
the proportion is 13 for each 10,000 inhalDitants, according to the census of 1903 
(p. 445, Vol. IV). 

In this connection we transcribe here below a paragraph from the page and. 
volume of the Philippine census above cited : 

" Considering the unstable state of the affairs of the country during the six: 
years preceding the taking of the census, the result is not only favorable, but is 
extraordinary, and indicates that the Filipinos, as a race, are not particularly 
inclined to crime." 

The diminution of crimes and of criminals in the Philippines is explained bj'' 
the better pacification of the country, resulting in attracting the people to their 
habitual love of agricultural, industrial, and commercial labor. This is so cer- 
tain that ill some crimes, banditry, for instance, the criminals are conspicuous- 
by their absence, according to the last criminal statistics published by the 
worthy attorney general of the islands, Hon. Ignacio Villamor. 

The Filipinos are given to labor, and consequently, as lovers of peace and 
order, they cultivate their rich agricultural lands and promote industry and 
commerce, in proof of which the increased value of imports and exports is 
cited. When it is taken into account that, according to the Philippine census- 
(p. 322, Vol. II), the active laborers of a country of 8,000,000 inhabitants count 
only 1,000,.525, and a like number, more or less, of women, it Is wonaerful that 
such a small active force should produce annually the fabulous sums above 
mentioned. 

The people of the islands are devoted to the family and the home, than which 
there are no better pledges for the stability and efficiency of any government 
where there is also an anxiety for education. They cultivate the sciences and 
arts devotedly, as evidenced by the 500,000 Filipino youths annually attending 
the public schools and private institutions here and abroad. They receive with 
affection all of the material improvements, such as the telegraph, the telephone, 
the railroads, the electric cars, automobiles, the press, and all classes of useful 
machinery. 

And, lastly, the Filipinos are hospitable and pacific toward the stranger, as 
you have had occasion to observe during your stay in the Archipelago. 

IV. 

Political Capacity. 

During the 10 years of American occupancy of the islands there have been 
held five general elections for provincial and municipal offices, and there have 
been two more for delegates to the Philippine Assembly. During these 10 years 
there have been some 90,000 Filipinos who have successively filled the various 
offices in the municipal councils, in the provincial governments, and in the 
Philippine Assembly in a manner that is certainly very satisfactory, with rare 
exceptions, because they have maintained public order, avoided insurrection, 
collected nearly ^=400,000,000 of public taxes, and have cooperated with the 
judicial, health, public works, and police officials for the best success of the 
entire civil service of the Philippine government. 

If this is not sufficient to demonstrate the full capacity of the Filipino people, 
then show us the book, the history, or the text in which we can learn the art of 
politics, because the history, universal and individual, ancient as well as 
modern, of all the civilized nations, can teach us nothing new or better with 
respect to the government of the respective peoples than has been put in prac- 
tice by the Filipino people, as has been shown. 



182 SPECIAL KEPOBTS ON THE PHILIPPINES. 

V. 

Administeative Capacity. 

During the 10 years of American occupation in tliese islands 7,056 Filipinos, 
excepting the constabulary and scouts, have held public offices in the judicial, 
fiscal, and all the different administrative bureaus of these islands, to the 
entire satisfaction of the American chiefs, as proved by the annual reports of 
the latter. 

But where the administrative capacity of the Filipino shov^^s brightest is in 
the armed corps of the scouts and the constabulary, in which it is not known 
whether to admire most their fidelity or their patience, their valor or their dis- 
cipline, or their activity or their intelligence in the performance of their labori- 
ous and difficult duties. 

VI. 

Inherent Incompatibilities. 

The illustrious American and statesman, Mr. Webster, said : 

"Gently as the yoke of a foreign government may rest, the happiness of a 
subject people is impossible." 

And so it is, honorable Secretary of War of the United States, for gently, 
and very gently, as rests the yoke of American Government in these islands, 
in comparison with that of the past, nevertheless the Filipino people are daily 
more unhappy, because of the incompatibility of any colonial government to 
make and give happiness to a subject people. 

We offer for your consideration some sad examples which demonstrate our 
thesis and that of the illustrious American statesman, Mr. Webster, which 
occurred here in the Philippines during the 10 years of American occupation. 
But before presenting them, we desire to make it understood that we give them 
without intent to complain of anyone or to accuse anyone, because our propo- 
sition is solely to demonstrate the impossibility of our being happy under the 
present government of the islands. 

FIKST CASE OF INCOMPATIBILITY. 

It is well known that when we made peace with the Army of the United 
States, through the friendly mediation of Hon. William H. Taft, now President 
of the United States, the Filipinos, notwithstanding having recognized American 
sovereignty, were yet permitted to use our Filipino flag, not as a symbol of 
sovereignty and national authority, but as a glorious remembrance of the past 
and as a symbol of our faith in the ideal and of our hopes in the glorious 
American flag to obtain our independence. And so we made use of the Filipino 
flag in our native holidays until August 23, 1907. 

But on this date the Philippine government, on the petition of all of the 
Americans in these islands, enacted the act, No. 1696, prohibiting the use of 
our beloved Filipino flag and penalizing infringement of the law with fine and 
imprisonment. 

Imagine for one moment, Mr. Secretary, that you had been in the Philippines, 
■as was Admiral Dewey, and authorized by your presence the inauguration and 
use of the Filipino flag, from June 12, 1898, in the face of the Spaniards and 
of all of the squadrons of the greatest nations of the world, suppressing it only 
on the day of the breaking out of hostilities between the Americans and Filipinos. 

Imagine for a moment that under the folds of the Filipino flag we fought the 
Spaniards in 1898, vanquishing them in noble conflict and capturing 9,000 Span- 
ish prisoners, though at the cost of many lives, and the blood and fortunes of 
xnany heroic sons of the Philippines. 

And imagine, at last, that this Filipino flag, moist with the blood of these 
heroic martyrs of the country, was the symbol of our dearest ideal, Philippine 
independence, and then you can understand, with a little impartiality, the great 
injustice to the FiUpino people in prohibiting them from using their beloved 
symbol. 

How is it possible to be happy when the heart is wounded in the most holy and 
most sacred of its sentiments? 



SPECIAL EEPOKTS ON THE PHILIPPINES. 183 

SECOND CASE 01' INCOMPATIBILITY. 

When our municipal authorities are to receive the Governor General, they I'lave 
the good taste to do it with bands or orchestras, though not required by law to 
do so, in order to show their sincere respect, sympathy, and courtesy to the first 
authority of the islands. And, as is customary, the first notes of salute are those 
of the American national march and of the Filipino national inarch, the Ameri- 
can march sometimes being played first, and at other times the Filipino. The 
ceremonial of reception was thus celebrated pacifically during the administra- 
tions of Messrs. Taft, Wright, Ide, and Smith. 

But the present Governor General, Hon. W. Cameron Forbes, has given verbal 
orders to the governor of Rizal and to the governor of Batangas, that in future 
the American march shall always precede the Filipino, and, naturally, this order 
is another wound inflicted on the heart of the Filipino people, who render homage 
to their national air with a fervor equal to that which they render to their 
beloved flag. 

THIED CASE OF INCOMPATIBILITY. 

Through the civil-service laws there exists a great difference between the 
salaries of American and Filipino employees, a difference which may be seen in 
the following proportion from the report of the Governor General for 1909 in 
reference to the bureau of civil service : 

Officials and employees : 

Americans 4, 397 

Filipinos 7, 056 

Salaries : 

Of 4,397 Americans f=8, 696, 962 

Of 7,056 Filipinos F4, 018, 988 

Average salary : 

For each American ?3, 225. 63 

For each Filipino ?914. 03 

This difference in pay has been interpreted, and is still interpreted, by the 
entire country as an unjust lack of consideration for the intelligence and effi- 
ciency of the Filipino official or employee. This lack of consideration has con- 
tinued through the 10 years of American occupation, filling with bitterness and 
unjustly humiliating the Filipino people. 

FOURTH CASE OF INCOMPATIBILITY. 

Americanista and anti-Americanista seem to be, for the present government, 
a sort of joker, to be played at any place and time, as was the case with Espanol 
and anti-Espaiiol in the time of the Spanish Government. 

This thing of Espanol and anti-Espaiiol was the cause of a great deal of ill 
feeling and discord between the Spaniards and Filipinos, resulting in grave 
and dangerous consequences for the Filipino people. This history is now being 
repeated, and there are daily occurrences due to its prejudicial influence, m 
the street cars, in the public streets and places, and in all private and official 
transactions, so that it now constitutes an injury to both people. Thus, a 
Filipino Nationalist is an anti-American, and should therefore be treated with 
contumely and repugnance. 

When it is remembered that the Nationalists constitute the majority of the 
people, then the suffering and pain caused the ear of the Filipino people by 
this fourth case of incompatibility will be understood. 

FIFTH CASE OF INCOMPATIBILITY. 

To the lack of equilibrium which exists, and which has existed always since 
American occupation between the total public taxation, ?=42,000,000, and the 
legal circulation, ^=40,337,982.04 (fiscal year 1908-9), is due the fact that 
usury reigns in the economic life of the country, and this never happened 
during the time of Spanish government. Then the taxes amounted to 
^13,000,000, though in the last years of the war of insurrection they increased 
to ?17,000,000, while the legal money, Mexican, circulated without limit, due 
to contraband, resulting in low rates of interest to the benefit of all. 

This usury now reaches to from 60 to 100 per cent per annum, and there is 
no remedy for it but to succumb, because the payments for taxes and economic 
necessities are peremptory- 



184 SPECIAL, REPORTS ON THE PHILIPPINES. 

We understand that as it was inherent under the Spanish Government to levy 
small taxes and to take small interest in public improvements, so it is inherent 
in the American Government to appropriate large amounts regardless of our 
strength, through its vehement desire to give us quickly all of the public im- 
provements. 

But we see clearly that both Governments act without consideration of the 
just interests of the Filipino people. From this we deduce that no foreign 
government is capable of conducting the Filipino people to peace and prosperity. 

All of the rules of political economy are subordinated to the resources, cus- 
toms, and habits of a people. If, for example, the production of beer, whisky, 
tobacco, and sugar were not favored in the United States, and as result thereof 
the American people had to import these articles from abroad, it is clear that 
the American people would be rendered economically unfortunate. 

And so it is in the Philippines. Spanish genius left us in abandon, and we 
were poor. American genius puts us in constant action, but to an extent much 
greater than our i-esources, strength, and energy will permit, and as a result we 
lack little, economically speaking, of being isolated. 

A proof of this statement is the great increase in the number of usurers 
established on each street of this city, while in the times of the Spanish Gov- 
ernment there were scarcely a half dozen. 

There is another example we could cite here, but with a regard for brevity, 
and in order not to further take your time we omit other citations, and close 
this message, repeating the prayer that for all of the reasons related you deign 
to recommend to the President of the great American Republic, that' he may 
in turn transmit the recommendation to Congress and to the Senate of the 
United States, that immediate independence be conceded to us, as the only 
right and natural means of bringing about our happiness, as was requested of 
the American Congress by our Resident Commissioner in the United States, 
Hon. Manuel L. Quezon. 
Very respectfully, 
B. Bustamente, President; Luciano de la Rosa, First Vice-President; 
A. L. Escamilla, Secretary ; Hermenegildo Cruz, Subsecretary ; Leandro 
Claro, Treasurer ; Timoteo Paez, G. Marankay, Cayto. Arguelles, 
H. Reyes, Members. 



Appendix F. 

Letter of Hon. Manuel Quezon. 

Manila, September 1, 1910. 

Mr. Secketaey : In compliance with your request made in a personal conver- 
sation with the undersigned, I have the honor hereby to express to you the 
opinion of the Filipinos on the friar-lands question. 

Of these, there are lands that are occupied by tenants and others that are 
not. It is the opinion of my people that those occupied by tenants should be, 
as soon as possible, sold to the tenants — irrespective of the size of the lands 
or parcels thereof so occupied — even though the government should incur some 
losses by the speedy disposal of such lands. The reason for this is that the 
purpose of the government in buying these lands from the friars was precisely 
to settle the serious problem arisen in these islands by the tenants of those 
lands through sale of said lands to their tenants. 

With regard to the unoccupied lands, it is the opinion of the Filipinos that 
they should be disposed of subject to the same limitations imposed by law on 
public lands. The reason for this is the same that the Filipinos have in object- 
ing to the sale of public lands in large areas. It is evident that the Filipinos, 
in so far as the friar-lands question is concerned, do not give any consideration 
to the business point of view of the matter, but only to the social and political 
ones. There are at present no people in this country that are either very 
wealthy or beggar ; the wealth of the country is divided among the people, and 
this is considered by the Filipinos as the guaranty for the conservatism of this 
community. 

Politically, it is the firm belief of the Filipinos that the ownership of large 
tracts of lands by foreigners constitutes a menace to the independence, both 
political and economical, of the archipelago. 

The foregoing opinion has been expressed and entertained by all Filipino 
papers, irrespective of their party affiliation, all of which unanimously declared 
themselves against the government's policy in the sale of the Mindoro estate, 
and I know, from what I have heard from other sources, that the opinion so 
expressed by the papei's is entirely in accord with the opinion of the people in 
general. 

Most respectfully, 

Manuel Quezon, 
Resident Commissioner to the United States for the Philippines. 

The Seceetart of War of the United States. 

Manila, P. I. 

185 



Appendix G. 



Statement or American and Filipino Employees. 

UNDER THE GOVERNOR GENERAL. 





Year. 


Amer- 


Filipino. 


th- 


Total. 


Percentage of— 


Bureau or service. 




















Amer- 
ican. 


Fili- 
pino. 


Oth- 
ers. 




1903 
1904 


50 
51 


53 
76 


2 

1 


105 
128 


48.0 
40.0 


50.0 
59.0 


2.0 




1.0 




1905 


46 


84 


1 


131 


35.0 


64.0 


1.0 




1906 


49 


106 


1 


156 


31.0 


68.0 


1.0 




1907 


43 


116 


2 


161 


27.0 


72.0 


1.0 




1908 


37 


100 


3 


140 


26.0 


72.0 


2.0 




1909 


35 


115 


2 


152 


23.0 


76.0 


1.0 




1910 


32 


110 


2 


144 


22.0 


77.0 


1.0 




1903 
1904 


86 

87 


238 
143 




324 
230 


27.0 
38.0 


73.0 
62.0 










1905 


80 


246 




326 


25.0 


75.0 






1906 


60 


183 




243 


25.0 


75.0 






1907 


50 


96 




146 


34.0 


66.0 






1908 


49 


101 




150 


33.0 


67.0 






1909 


47 


102 




149 


32.0 


68.0 






1910 


39 


101 




140 


28.0 


72.0 




Municipal service 


1903 


24 


14,098 




14,122 


.2 


99.8 






1904 


44 


11,289 




11,333 


.4 


99.6 






1905 


58 


10,725 




10, 783 


.5 


99.5 






1906 


68 


10,774 




10,842 


.6 


99.4 






1907 


88 


11,350 




11,438 


.8 


99.2 






1908 


82 


11,760 




11,842 


.7 


99.3 






1909 


81 


12,275 




12,356 


.7 


99.3 






1910 


102 


12,417 




12,519 


.8 


99.2 






1904 
1905 


61 
56 


27 
41 




88 
97 


69.0 
58.0 


31.0 

42.0 










1906 


68 


5.4 




122 


56.0 


44.0 






1907 


69 


61 




130 


53.0 


47.0 






1908 


66 


78 




144 


45.0 


55.0 






1909 


64 


103 


1 


168 


38.0 


61.3 


.7 




1910 


60 


135 


1 


196 


30.5 


69.0 


.5 




1903 
1904 


11 
20 


8 
14 




19 
34 


58.0 
59.0 


42.0 
41.0 










1905 


16 


19 




35 


46.0 


54.0 






1906 


11 


18 




29 


38.0 


62.0 






1907 


11 


19 




30 


37.0 


63.0 






1908 


10 


17 




27 


37.0 


63.0 






1909 


11 


23 




34 


32.0 


68.0 






1910 


10 


25 




35 


29.0 


71.0 






1903 


739 


3,439 




4,178 


18.0 


82.0 






1904 


843 


4,013 




4,856 


17.0 


83.0 






1905 


826 


3,675 




4,501 


18.0 


82.0 






1906 


720 


5,245 




5,965 


12.0 


88.0 






1907 


505 


5,166 




5,671 


9.0 


91.0 






1908 


463 


3,521 




3,984 


12.0 


88.0 






1909 


522 


4,993 




5,515 


10.0 


90.0 






1910 


468 


3,908 




4,376 


11.0 


89.0 





DEPARTMENT OF COMItlEIlCE AND POLICE. 



Bureau of constabulary: 
Officers 



1903 


205 


1904 


261 


1905 


269 


1906 


247 


1907 


253 


1908 


248 


1909 


246 


1910 


254 



66 
73 
71 
66 
68 
74 
67 
64 


::::::::i 



271 


76.0 


24.0 


334 


78.0 


22.0 


340 


79.0 


21.0 


313 


79.0 


21.0 


321 


79.0 


21.0 


322 


77.0 


23.0 


313 


78.0 


22.0 


318 


80.0 


20.0 



186 



SPECIAL KEPOKTS ON THE PHILIPPINES. 



187 



statement of American and Filipino employees — Continued. 

DEPARTMENT OF COMMERCE AND POLICE— Continued. 



DEPARTMENT OF FINANCE AND JUSTICE. 





Year. 


Amer- 
ican. 


Filipino. 


Oth- 
ers. 


Total. 


Percentage of— 


Bureau or service. 


Amer- 


Fili- 


Oth- 














ican. 


pmo. 


ers. 


Bureau of constabulary— Contd. 




















1903 
1904 


23 

48 


70 
60 




93 

108 


26.0 
45.0 


74.0 
55.0 










1905 


56 


165 




221 


25.0 


75.0 






1906 


68 


88 




156 


44.0 


56.0 






1907 


23 


61 




84 


27.0 


73.0 






1908 


22 


59 




81 


27.0 


73.0 






1909 


24 


60 




84 


29.0 


71.0 






1910 


21 


61 




82 


26.0 


74.0 






1903 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1903 




3" 


6,264 
6,683 
6,799 
4,800 
4,788 
4,622 
4,624 
4,256 








100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 
100.0 














































































3 








1904 


54 


15 




69 


78.0 


22.0 






1905 


49 


26 




75 


65.0 


35.0 






1906 


83 


60 




143 


42.0 


58.0 






1907 


.100 


84 




184 


54.0 


46.0 






1908 


155 


117 




272 


57.0 


43.0 






1909 


381 


479 




860 


44.0 


56.0 






1910 


456 


715 




1,171 


39.0 


61.0 






1903 


120 


1,152 


93 


1,365 


8.7 


84.3 


7.0 




1904 


178 


1,534 


166 


1,878 


9.4 


81.7 


8.8 




1905 


159 


1,518 


136 


1,813 


8.7 


83.7 


7.6 




1906 


137 


1,461 


202 


1,800 


7.6 


81.1 


11.3 




1907 


150 


1,569 


140 


1,859 


8.0 


84.4 


7.6 




1908 


141 


1,467 


158 


1,766 


8.0 


83.0 


9.0 




1909 


151 


1,594 


237 


1,982 


7.8 


80.4 


11.8 




1910 


182 


2,141 


296 


2,619 


6.9 


82.5 


11.6 




1903 


234 


137 


1 


372 


62.9 


36.8 


.3 




1904 


197 


379 


1 


577 


34.1 


65.7 


.2 




1905 


156 


453 


3 


612 


25.5 


74.1 


.4 




1906 


223 


777 


3 


1,003 


22.2 


77.5 


.3 




1907 


210 


878 


3 


1,091 


19.2 


80.5 


.3 




1908 


237 


1,125 


3 


1,365 


17.4 


82.4 


.2 




1909 


201 


1,164 


2 


1,367 


14.7 


85.1 


.2 




1910 


191 


1,377 


1 


1,569 


12.2 


87.79 


.01 


Bureau of coast surveys 


1903 


19 


208 




227 


8.0 


92.0 






1904 


19 


215 




234 


8.0 


92.0 






1905 


25 


266 




291 


9.0 


91.0 






1906 


35 


265 




300 


12.0 


88.0 






1907 


44 


274 




318 


14.0 


86.0 






1908 


49 


275 




324 


15.0 


85.0 






1909 


49 


278 




327 


15.0 


85.0 






1910 


47 


255 




302 


16.0 


84.0 






1910 
1906 


2 


17 

5 




17 

7 


"'28'6' 


100.0 
71.4 










1907 


5 


14 




19 


26.3 


73.7 






1908 


8 


12 




20 


40.0 


60.0 






1909 


8 


13 




21 


38.0 


62.0 






1910 


14 


15 




29 


48.3 


51.7 






1907 


6 


4 




10 


60.0 


40.0 






1908 


5 


1 




6 


83.3 


16.7 






1909 


3 


1 




4 


75.0 


25.0 






1910 


3 


1 




4 


75.0 


25.0 





Bureau of the treasury . 



Bureau of internal revenue. 



1903 


27 


1904 


44 


1905 


42 


1906 


23 


1907 


24 


1908 


21 


1909 


19 


1910 


19 


1903 


26 


1904 


36 


1905 


72 


1906 


72 


1907 


89 


1908 


89 


1909 


83 


1910 


84 



11 

16 

22 

24 

19 

21 

21 

122 

133 

176 

241 

308 

336 

343 

331 



36 


75.0 


25. 


55 


80.0 


20.0 


58 


72.0 


28.0 


45 


51.0 


49.0 


48 


50.0 


50.0 


40 


53.0 


47.0 


40 


47.0 


53.0 


40 


47.0 


53.0 


148 


18.0 


82.0 


169 


21.0 


79.0 


248 


29.0 


71.0 


313 


23.0 


77.0 


397 


22.0 


78.0 


425 


21.0 


79.0 


426 


19.0 


81.0 


415 


20.0 


80.0 



SPECIAL REPORTS ON THE PHILIPPINES. 

Btatemcnt of American and Filipino employees — Continued. 
DEPARTMENT OF FINANCE AND JUSTICE— Continued. 



Bureau or service 



Year. 


Amer- 




ican. 


1904 


278 


1S05 


241 


1906 


221 


1907 


173 


1908 


150 


1909 


146 


1910 


136 


1904 


3 


1905 


7 


1906 


7 


1907 


9 


1908 


7 


1909 


6 


1910 


6 


1903 


4 


1904 


4 


1905 


2 


1906 


4 


1907 


3 


1908 


3 


1909 


4 


1910 


3 


1903 


21 


1904 


23 


1905 


21 


1906 


20 


1907 


16 


1908 


13 


1909 


15 


1910 


12 





Oth- 




ers. 


733 


13 


716 


12 


553 


13 


537 


13 


533 


12 


522 


11 


532 


11 


10 




35 




38 




47 




52 




65 




81 




16 


1 


16 


1 


16 


1 


17 


1 


21 


2 


23 


2 


23 


2 


25 


2 


13 




13 




15 




17 




23 




25 




28 




30 





Total. 



Percentage of- 



Amer- 
ican. 



Fili- 
pino. 



Bureau of customs . 



Court of land registration. 



Supreme court . 



Bureau of justice. 



1,024 

969 

787 

723 

695 

679 

679 

13 

42 

45 

56 

59 

71 

87 

21 

21 

19 

22 

26 

28 

29 

30 

34 

36 

36 

37 

39 

38 

43 

42 



27.0 
25.0 
28.0 
24.0 
21.0 
21.0 
20.0 
24.0 
17.0 
16.0 
16.0 
12.0 
8.5 
7.0 
19.0 
19.0 
10,0 
18.0 
11.0 
10.0 
14.0 
10.0 
62.0 
64.0 
58.0 
54.0 
42.0 
34.0 
35.0 
29.0 



72.0 
74.0 
70.0 
74.0 
77.0 
77.0 
78.0 
76.0 
83.0 
84.0 
84.0 
88.0 
91.5 
93.0 
76.0 
76.0 
85.0 
77.0 
81.0 
83.0 
79.0 
83.0 
38.0 
36.0 
42.0 
46.0 
58.0 
66.0 
65.0 
71.0 



DEPARTMENT OF PUBLIC INSTRUCTION. 



Bureau of agriculture. 



Bureau of education. 



Bureau of printing . 



Bureau of prisons . 



Bureau of supply . 



Philippines library 

PhUippiae medical school . 



1903 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1903 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1903 
1904 
1905 
1906 
1907 
1908 
1909 
1910 
1910 
1907 
1908 
1909 
1910 



24 

22 

20 

33 

38 

50 

66 

96 

761 

893 

801 

784 

760 

863 

770 

58 

47 

40 

33 

30 

27 

27 

33 

50 

63 

62 

67 



70 
183 
174 
131 
92 
98 
85 
81 
90 
1 
15 
39 
18 
24 



181 




274 




359 




231 




289 




335 


2 


322 


5 


670 


5 


3,658 




4,587 




4,849 




6,271 




6,962 




7,698 




8,620 




218 


5 


241 


6 


253 


3 


257 


3 


318 


3 


285 


3 


318 


3 


59 




63 




84 




104 




109 




117 


2 


117 


2 


124 


2 


960 


4 


804 


2 


378 


2 


359 


3 


370 


3 


419 


2 


390 


2 


466 


2 


1 




24 


1 


28 




32 


1 


37 


2 



205 

296 

379 

264 

327 

387 

393 

771 

4,419 

5,480 

5,650 

7,055 

7,722 

8,561 

9,030 

281 

294 

296 

293 

351 

315 

348 

92 

113 

147 

166 

176 

187 

183 

196 

1,147 

980 

511 

454 

471 

506 

473 

658 

2 

40 

46 

51 

63 



12.0 
7.0 
5.0 
13.0 
12.0 
13.0 
17.0 
12.0 
17.22 
16.30 
14.18 
11.11 
9.84 
10.08 
8.52 
20.64 
15.98 
13.51 
11.26 
8.54 
8.57 
7.76 
35.87 
44.25 
42.86 
37.35 
38.07 
36.36 
34.97 
35.71 
16.0 
17.7 
25.6 
20.3 
20.8 
16.8 
17.3 
16.1 
50.0 
37.5 
39.0 
35.0 
38.1 



88.0 

93.0 

95.0 

87.0 

88.0 

87.0 

82.0 

87.0 

82.78 

83.70 

85.82 

88.89 

90.16 

89.92 

91.48 

77.58 

81.97 

85.47 

87.71 

90.59 

90.50 

91.38 

54.13 

55.75 

57.14 

62.65 

61.93 

62.56 

63.93 

63.26 

83.7 

82.0 

74.0 

79.0 

78.5 

82.8 

82.4 

83.5 

50.0 

60. 

61.0 

63.0 

58.7 



SPECIAL EEPORTS OX THE PHILIPPIIfES. 



189 



Statement of American and Filipino employees — Continued. 
DEPARTMENT OF PUBLIC INSTRUCTION— Continued. 





Year. 


Amer- 
ican. 


Filipino. 


Oth- 
ers. 


Total. 


Percentage of— 


Bureau or service. 


Amer- 
ican. 


Fili- 
pino. 


Oth- 
ers. 


University of the Philippines 

•Circulating library 


1909 
1910 
1910 


4 
13 
6 


2 
21 
12 


1 
2 


7 
36 
18 


57.0 
36.0 
33.3 


29.0 
58.0 
66.7 


14.0 
6.0 











DEPARTMENT OF THE INTERIOR. 



Bureau of health 


1904 
1905 


164 
138 


169 
145 


5 

8 


338 
291 


48.5 
47.4 


50.0 
49.8 


1.5 




2.8 




1906 


149 


352 


8 


509 


29.3 


69.1 


1.6 




1907 


92 


409 


9 


510 


18.0 


80.2 


1.8 




1908 


96 


509 


6 


611 


15.7 


83.3 


1.0 




1909 


138 


555 


7 


700 


19.7 


79.3 


1.0 




1910 


98 


590 


7 


695 


14.1 


84.9 


1.0 


Quarantine ser\'iee 


1903 
1904 


16 
18 


60 
65 


2 
2 


78 
• 85 


20.0 
21.0 


77.0 
77.0 


3.0 




2.0 




1905 


17 


65 


2 


84 


20.0 


78.0 


2.0 




1906 


14 


64 


2 


80 


18.0 


80.0 


2.0 




1907 


15 


63 


2 


80 


19.0 


79.0 


2.0 




1908 


12 


65 


2 


79 


15.0 


82.0 


3.0 




1909 


12 


64 


2 


78 


15.0 


82.0 


3.0 




1910 


11 


63 


3 


77 


14.0 


82.0 


4.0 


Bureau of lands 


1904 
1905 


10 
9 


5 
5 




15 
14 


67.0 
65.0 


33.0 
35.0 










1906 


44 


35 


3" 


82 


54.0 


4.3.0 


""3.0 




1907 


79 


48 


5 


132 


60.0 


36.0 


4.0 




1908 


90 


93 


11 


194 


46.0 


48.0 


6.0 




1909 


115 


164 


15 


294 


39.0 


56.0 


5.0 




1910 


122 


234 


10 


386 


33.0 


64.0 


3.0 


Bureau of forestry 


1903 
1904 


33 
36 


104 
145 


1 
1 


138 

182 


24.0 
19.0 


75.0 
80.5 


1.0 




.5 




1905 


21 


115 


1 


137 


IS.O 


84.0 


1.0 




1906 


15 


38 


1 


54 


28.0 


70.0 


2.0 




1907 


12 


25 


1 


38 


32.0 


65.0 


3.0 




1908 


12 


24 


1 


• 37 


32.0 


65.0 


3.0 




1909 


15 


22 


1 


38 


39.0 


58.0 


3.0 




1910 


16 


32 


1 


49 


33.0 


65.0 


2.0 


Weather bureau 


1903 
1904 


2 
5 


78 
74 


6 

4 


86 
83 


2.0 
6.0 


91.0 
89.0 


7.0 




5.0 




1905 


5 


79 


6 


90 


6.0 


88. 


6.0 




1906 


4 


73 


6 


83 


5.0 


88.0 


7.0 




1907 


3 


79 


7 


89 


3.0 


89.0 


8.0 




1908 


2 


78 


8 


88 


2.0 


89.0 


9.0 




1909 


2 


80 


8 


90 


2.0 


89.0 


9.0 




1910 


2 


91 


6 


99 


2.0 


92.0 


6.0 


Bureau of science 


1903 
1904 


25 
39 


36 

55 


i' 


61 
95 


41.0 
41.0 


59.0 
58.0 






"i.'o 




1905 


38 


64 


1 


103 


37.0 


62.0 


1.0 




1906 


47 


80 


3 


130 


36.0 


62.0 


2.0 




1907 


41 


78 


4 


123 


33.0 


64.0 


3.0 




1908 


38 


88 


5 


131 


29.0 


■ 67.0 


4.0 




1909 


46 


92 


11 


149 


31.0 


62.0 


7.0 




1910 


44 


115 


6 


165 


27.0 


70.0 


3.0 



o 



